ABSTRACT

THE DEVELOPMENT OF MODEL TRAINING AND
CONTINUING EDUCATION CURRICULUM AND SUPPORTING
RATIONALE FOR A CRIMINAL JUSTICE SYSTEM
SERVING A METROPOLITAN REGION

BY

Vernon Eugene Rich

The volume of crime, the failure of crime prevention
and rehabilitation, racial unrest and social conflict in the
United States have given impetus to the develOpment of a new
field of study or discipline being called justice or criminal
justice. Awareness of a "criminal justice system" and its
apparent failure as a system has led to federal legislation,
research, more expenditures and other similar efforts to
prevent the failure of the system. Out of these efforts has
emerged a gradually increasing concern for the education and
training of personnel comprising the system.

This study develops the major curriculum criteria,
their supporting rationale and curriculum modules for an
organization composed of four criminal justice centers and
an institute serving approximately 240 political subdivisions

located in the seven county metropolitan area surrounding

Vernon Eugene Rich

and including Detroit, Michigan. The centers are located at
community colleges and the institute is located at a major
state university. Approximately 18,300 public criminal
justice personnel are located in the seven county region

and constitute the study pOpulation. The develOpment of the
centers and institute was treated as an assumption and two
centers had come into being by the time of completion of the
study.

A major aspect of the problem selected for the study
was the need for a theoretical conceptualization of the
field or emerging discipline for educational and training
purposes. Such a conceptualization was provided by using
a Venn diagram. The intercept functions of a Venn diagram
schematically depict the influences and overlap of each sub-
system upon each other. The intercept feature also formed
the basis for the classification scheme needed for the content
modules.

Included as a part of the organization, which was
assumed to exist for purposes of the study, is a change team
composed of change strategists charged with the responsibility
of planning, directing and evaluating change brought about
directly and indirectly through training and education. The
prOposed curriculum criteria reflect the constant concern for
change and the need for creating a climate in the field or

discipline receptive to change.

Vernon Eugene Rich

The study consisted of (l) a census of all personnel
in the region followed by a grouping or clustering of
similar positions, (2) the selection of twenty-two law
enforcement, prosecution, correctional and court agencies
using a combination of stratified and judgmental sampling
techniques to comprise a sample, (3) the field administering
of task listing and task description instruments to obtain
detailed descriptions and listings of all tasks performed by
criminal justice personnel in the region, (4) the clustering
of these tasks into modules that form the basis for the
curriculum, and (5) the develOpment of criteria and support-
ing rationale for designing curricula.

The major products of the study were the theoretical
conceptualization of criminal justice education, the taxonomy
of personnel positions and the task statements, the curriculum
criteria and the supporting rationale for the criteria. A
major incidental finding was the surprisingly important role
of the private sector in providing security for individuals,
private business, associations, schools and other groups in
society. Inclusion of the private sector in the model makes

it more complex, but much more realistic.

THE DEVELOPMENT OF MODEL TRAINING AND
CONTINUING EDUCATION CURRICULUM AND SUPPORTING
RATIONALE FOR A CRIMINAL JUSTICE SYSTEM

SERVING A METROPOLITAN REGION

BY

Vernon Eugene Rich

A THESIS

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

DOCTOR OF PHILOSOPHY

College of Education
Department of Administration and Higher Education

1971

ACKNOWLEDGMENTS

In addition to the criminal justice agency person-
nel who graciously contributed time, effort and the benefit
of their accumulated experience, the contributions of
several others primarily during the eighteen months of the
project deserve Special mention and an acknowledgment of my
appreciation.

Professor Ralph Turner, School of Criminal Justice,
provided guidance through five years of graduate studies
and served as a criminal justice content specialist on the
dissertation guidance committee. During this period, he
instilled a deep appreciation for quality in justice and
the cross-cultural dimensions of justice.

Professor Russell Kleis, major advisor and disserta—
tion director, provided a high degree of concern for academic
excellence and supported it with interest, patience and
guidance.

Professors Lawrence Borosage, David Heenan and
Lawrence McKune, doctoral committee members, provided program
guidance and dissertation critiques that offered the benefit
of their professional expertise to the emerging field of

criminal justice.

ii

Mr. Glenford Leonard, Director, Public Safety Division
of the SouthEast Michigan Council of Governments, provided
the Opportunity to conduct the study in an atmosphere con-
ducive to innovation. Such an atmosphere has constantly
surrounded his professional career.

Professor Art Kingsbury provided imagination, insight
and a high degree of willingness to induce change among the
criminal justice educators and practitioners who participated
in the project. His contributions to the study in the area
of security and crime prevention deserve Specific acknowledg—
ment.

A special note of thanks must be given to Jane, John,
Carol, Mike and Karin for their patience and understanding

through the years.

iii

TABLE OF CONTENTS

ACKN OWI‘E DGWNT S O O O O O O O O O O O O O O O O O I

LIST OF

LIST OF

Chapter

I.

II.

TABLES O O O O O O O O O O O O O O O O O O

FIGURES O O O O O O O O O O O O O O O O O 0

INT RODucr ION O O O O O O O O O O O O O O 0

Statement of Problem
Objectives of Study .
Setting of Study . .
Sc0pe and Limitations
Assumptions . . . .

Significance of Study
Definition of Terms .
Organization of Study

000.0000
H)
(D
oooorfooo
0003...
"<

REVIEW OF LITERATURE . . . . . . . . . . .

Introduction ; . . . . . . . . .
The Consolidated Federal Law Enforcement
Training Center Curriculum Study . . . .
A Feasibility Study to Create a Training
Center for Law Enforcement and Criminal
Justice Personnel in the State of Hawaii
The Florida Institute for Law Enforcement
Bramshill: England's Police College . .
The Institute for Court Management . . .
State Training Standards Councils for
Police . . . . . . . . . . . . . . . . .
Considerations of Major Educational Models.
The Emerging Concept of Andragogy . . . . .
Literature Synthesis . . . . . . . . . . .

iv

Page
ii
'vi

vii

13
15
16
22
24
26

40
42
42
43
48
57
58
59
64
66

72
74

Chapter

III.

IV.

METHODS AND PROCEDURE . . . . . . . . .

Introduction . . . . . . .

Description of POpulation . . . . . . .
The Geographical Region . . . . . . .
The PeOple of the Region . . . . . .
The Region's Criminal Justice Agencie

and Their Personnel . . . . . . . .

a. The Crime Control Function and
Personnel . . . . . . . . . . .

b. The Prosecution Function and
Personnel . . . . . . . . . . .

c. The Courts Function and Personnel

d. The Corrections Function and
Personnel . . . . . . . . . . .

Method and Procedures
The Census . . . .
The Sample . . . .
The Instruments . .
Compilation . . . .

conCIuSion O O O O O O O O I O O O O O

PRESENTATION OF FINDINGS AND DISCUSSION
OF RESULTS 0 o ’ o o o o o o o o o o o 0

Introduction . . . . . . . . . . . . .

A Conceptual Model of Criminal Justice
Summary of Task Statements . . . . . .
Model Curriculum Criteria and Rationale
The Framework of the Model Curriculum .
Other Findings . . . . . . . . . . . .

SUMMARY AND CONCLUSIONS . . . . . . . .

Introduction . . . . . .

Summary of Objectives, Method and Finding

Conclusion . . . . . . . . . . . . . .
Implications . . . . . . . . . . . . .

SELECT BIBLIOGRAPHY . . . . . . . . . . . . . .

APPENDIX 0 O O O I O O O O O O O O O O O O O O

Page

78

78
78
78
80

80

81
93

101

105
108
108
111
116

122

124

124

125
130
150
158
173
177
177
177
180
182
184

198

LIST OF TABLES

Table Page

1. Police and sheriffs departments by number
of part-time and full-time sworn person-
nel as of 1969 for the 240 political
subdivisions comprising the seven-county
Detroit Metr0politan Region . . . . . . . . . 16

2. Distribution of Region's criminal justice
personnel by county and function- . . . . . . 81

3. Distribution of Michigan State Police Offi-
cers by Posts in Region One in 1968 . . . . . 91

4. The categorization of police and sheriffs'
personnel ranks and titles into groups
by major type of work required . . . . . . . 94

5. Distribution of police and sheriff's per-
sonnel by county and job rank in Region
one in 1969 O I O O O O I 0‘ I O O O O O O O O 95

6. Region One's prosecution personnel by county
and major type of work required, 1969 . . . . 97

7. A categorization of Region One court person-
nel into groups by major type of work
required . . . . . . . . . . . . . . . . . . 101

8. Region One court personnel by major type
of work and county, 1969 . . . . . . . . . . 102

9. Region One correctional personnel by county
and major type of work required, 1969 . . . . 104

10. The categorization of correctional personnel

positions or titles into groups by type of
work required . . . . . . . . . . . . . . . . 105

vi

LIST OF FIGURES

Figure Page

1. A general View of the criminal justice
system O O O O O O O O O O O I O O O O O O O 3

2. Assumed organizational plan for the SouthEast
Michigan Criminal Justice Institute and
centers 0 O O O O O O O O O O O O O O O O O 2 l

3. Instructional system design developed by
the Army Security Agency Training Center
and School at Fort Devens, Massachusetts . . 44

4. Instructional system design as revised and

used by the Federal Law Enforcement

Training Center Curriculum Task Force,

Washington, D.C. . . . . . . . . . . . . . . 45
5. Task listing sheet . . . . . . . . . . . . . . 112
6. Task description sheet .'. . . . . . . . . . . 113
7 O COde Sheet 0 O O O O O O I O O O O O O O O O O 114
8. Set relationships used to depict the inter-

relationships of a criminal justice
01117310111111“ 0 o o o o o o o o o o o o o o o o 127

xvii

CHAPTER I

INTRODUCTION

The demands placed upon the contemporary American
criminal justice system are unprecedented in magnitude and
complexity. The role of the crime control personnel and,
more broadly, the total criminal justice system is becoming
increasingly difficult to manage because of the volume of
crime, the failure of crime prevention and rehabilitation,
racial unrest, and social change within American urban
communities. This system complexity is increasing for the
personnel of the criminal justice system as we see a desire
on the part of society to restrict social control agents
from constraining desirable social change while at the same
time demanding that law and order under justice be maintained.
Such expectations require a near "tight—rope" performance by
criminal justice personnel.

America's system of criminal justice is not a true
system. It is rather a conglomerate of city, village, town-
ship, county, state, and federal social control apparatus
used to enforce predominant standards of conduct deemed
necessary by legislative or parliamentary majorities to

protect individuals and the community. The levels of

competence of the personnel that staff these social control
mechanisms range from the inept and incompetent to the skilled
and well-educated. Many public and private reports have
cited the lack of training and education among the personnel
who comprise the composite staff as a primary reason for the
outdated and dysfunctional criminal justice "system" we now
have serving the public.1
The complexity of the American criminal justice
system is suggested by Figure l, which demonstrates the linear
and interdependent relationships between the system's major
components--police, prosecution, courts, and corrections.
Each of these functional sub-systems has its own distinctive
educational and training "standards" for the personnel com-
prising its staff. For example, lawyers by statute and
custom staff prosecution and court agencies; thus, most
personnel have a minimum of five and a maximum of generally
seven or eight years of formal liberal and professional
education and training beyond secondary school. Police
forces, on the other extreme, generally are staffed with
persons who have no formal education beyond secondary school,
a minimal amount of training, and no significant continuing

education or in-service training. Correctional personnel

 

1Charles B. Saunders, Upgrading the American Police:
Education and Traini_g for Better Law Enforcement (Washington,
D. C.: The Brookings Institution, 1970); and, President' 8 Com-
mission on Law Enforcement and Administration of Justice, The
Challenge of rCrime in a Free Society (Washington, D. C.:
Government Printing Office, 1967).

 

Figure 1. A General Overview of the Criminal
Justice System. (Over)

‘l

A general view of The Criminal Justice System

This chart seeks to present a simple yet comprehensive view
of the movement of cases through the criminal justice system.
Procedures in individual jurisdictions may vary from the
pattern shown here. The differing weights of line indicate
the relative volumes of cases disposed of at various points
in the system. but this is only suggestive since no nationwide
data of this sort exists.

Police Prosecution Courts

5
Information

        
    

  

uridetecmd Unsolved or Released Without Released W‘U‘Uul Charges Dropped Cram” 0'0”“
Crime. Not Arrested ProseCution Prosecu Ion o, 0,5,“.559‘, or Dismissed

0
Grand Jury

           
  

 

Felonies

Relusal to indict

   

‘ limit"
on...” 4 . ' ‘
W rm Investigation

[’i in t

 

4
Preliminary
Heanng

    
 
 

' Mbdonmnon
Crime

. 5
Information

   

r’ rimw
Rr‘pr’l'w",
lrr tin

i’rr‘i' i‘

 
 
 

Reiease or Station
Adjustment Released

   
 

Unreportod
Crimes

 
 
 
  

   
  
 

  
 

Police ,,

11
Juvenile Unit Intake Hearing

 
 

Non-Police Referrals

Before magistrate. commissioner. or justice of 5 Charge filed by prosecutor on basis of

May continue until trial.

. . , . peace. Formal notice of charge. advice of information submitted by police or citizens.
2 Administrative record 0f arrest: my step at rights. Bail set. Summary trials for petty Alternative to grand jury indictment: often
which temporary release on ball may be offenses usually conducted here without used in felonies. almost always in
available. further processing. misdemeanors.
4 Preliminary testing of evidence against 3 Reviews whether Government evidence
defendant. Charge may be reduced. No sufficient to justify trial. Some States have no
separate preliminary hearing for misdemeanors grand jury system; others seldom use it.

in some systems.

Source: The President's Commission on Law Enforcement and
Administration of Justice, The Challenge of Crime
in a Free Society (Washington, D.C.: U.S. Govern-
ment Printing Office, 1967), pp. 8-9.

Corrections

PmNMn

Char a Dismissed Acauitted

   
 
 
     
 
   
  
  
  

Revocation

Sentencing

  

I
Reduction 0' Charoe Appeal Elbe“
wws

          
   
 
 

Charoe D'sm-sseo Acau-iieo Probation

E

Revocal-on

    
    
   
    

Released

Nonpaymanl

Revocation

Juvenile Institution

ft:

Nonadjudicatory
DHfiMM

Revocation

7 Appearance for plea: defendant elects trial by ’ Challenge on constitutional grounds to legality " Probation officer decides desirability of further
judge or jury (it available): counsel for indigent of detention. May be sought at any point in court action.
l ' ' . . .
:32: 22:31:39?“ In felonies Often not process 11 Welfare agency. some! services. counselling,
‘ '0 Police often hold informal hearings. dismiss or medical cars. etc.. for cases where
' Charge may be reduced at any time prior to adjust many cases without further processing. adjudicatory handling not needed.

trial in return for plea of guilty or for other
reasons.

are usually divided into two categories: treatment person-
nel and custodial personnel. Treatment personnel usually
have formal education of four to six years and some degree
of on-the—job or intern-type training. Custodial personnel
characteristically have a high school diploma or its equiv-
alent with minimal classroom training.

Confusing an understanding of the various types and
quantities of training and education possessed by personnel
in the criminal justice system is the problem of recruitment
and selection programs and standards (especially for police
personnel): Police recruitment by virtue of the way it is
designed tends to entice and, in fact, does entice applicants
who rank primarily in the bottom 25 percent of their high
school graduating classes.2

In 1968, Congress enacted and President Johnson
signed into law the "Omnibus Crime Control and Safe Streets
Act of 1968." It was designed

to assist state and local governments in reducing

the incidence of crime, to increase the effectiveness,
fairness, and coordination of law enforcement and

criminal justice systems at all levels of government,
and for other purposes.

 

2Hubert G. Look, The Detroit Riot of 1967 (Detroit:
Wayne State University Press, 1969), pp. 150-15I.

 

3The Preamble of the Omnibus Crime Control and Safe
Streets Act of 1968, Public Law 90-351, 90th Congress,
June 19, 1968.

This same Act provided for financial grants and loans
(forgivable at 25% per year of service to the criminal jus-
tice field up to 100%) to students and personnel of the
criminal justice system.’ Other sections of the Act provided
for direct block grants to states to provide financial assis-
tance to local units of government to improve the quality of
their public service in the area of criminal justice. T0p
priorities were placed on training in nearly all states.4

Congress in the same Act held that crime is essen—
tially a local problem and should be dealt with by the local
units of government.

The following is a declaration of the problem as

perceived by Congress. It specifies the purposes of the Act:

Congress finds that the high incidence of crime
in the United States threatens the peace, the
security, and general welfare of the greater safety
of the Nation and its citizens. To prevent crime
and to insure the greater safety of the peOple, law
enforcement efforts must be better coordinated,
intensified, and made more effective at all levels
of government.

Congress finds further that crime is essentially
a local problem that must be dealt with by State
and local governments if it is to be controlled
effectively.

It is therefore the declared policy of the
Congress to assist State and local governments in

 

4Typical of this nationwide trend to give training
needs a high priority was the plan adOpted in the Detroit
Metr0politan area. The regional planning council for that
region recognized the severe need for manpower develoPment
programs and requested that 24% of the funds allocated to
the region be spent for that purpose.

strengthening and improving law enforcement at
every level by national assistance. It is the
purpose of this title to (1) encourage States and
units of general local government to prepare and
adOpt comprehensive plans based upon their evalu-
ation of State and local problems of law enforce-
ment; and (2) encourage research and development
directed toward the improvement of law envorce-
ment and the development of new methods for the
prevention and reduction of crime and the detec-
tion and apprehension of criminals.

The high priority placed on training of criminal
justice personnel at all levels within each agency is an.
acknowledgment of the potential impact of training for
promoting and implementing the change necessary to meet con-
temporary needs of the criminal justice system and society.
Education of these and future personnel is firmly recognized
by the same Act which provides for direct federal assistance
to college students preparing for careers in the field.

The amount of federal funds allocated under the Act
was $59 million the first year, and $268 million for the
second year. President Nixon requested $480 million for the
third year and received $698.4 million. It is anticipated
that within the next few years the allocation will exceed
$1 billion annually.

The Act requires that comprehensive plans be deveIOped

by local units of government before being eligible to receive

action grants. Federal and State administrative directives

 

5Taken from the "Declaration and Purpose" section of
Title I--Law Enforcement Assistance of the "Omnibus Crime
Control and Safe Streets Act of71968," Public Law 90-351,
90th Congress, June 19, 1968.

 

require regional planning which defines long and short range
goals and objectives, action programs, and priorities. The
upgrading of criminal justice personnel through training and
education is one such goal and probably has the most potential
for lowering the crime rate over a long period of time.

To date, the criminal justice agencies of the United
States have existed in a non-consolidated, non-systemic, and
fragmented fashion with little concern given to the quality
of manpower providing services to the public under its aus-
pices. Training programs, both at induction level and con-
tinuing, are minimal and provide only the barest essentials.
Criminal justice agencies have now reached the point of
recognizing that they must recruit, select, and train well-
educated manpower and then provide training and education
on a continual basis throughout the public career of these
criminal justice personnel. The abuses and miscarriages of
justice imposed by poorly trained personnel of criminal jus-
tice agencies are widely acknowledged and need not be
repeated here to provide additknal setting for the problem.

The recruitment, selection, education and training
of personnel for criminal justice agencies are so inter-
dependent that the problems of each are directly influenced,
if not controlled, by the characteristics of the others.
For example, poorly qualified personnel generally need a
much higher level of training to provide satisfactory job

performance while highly qualified personnel generally need

10

lower levels of training to provide satisfactory performance
on the job. Recognizing this interdependency, the educa-
tional and training needs of criminal justice personnel are
singled out for purposes of this study.

Each of the criminal justice functions has deve10ped
independently in terms of its pre-service and post-service
education and training pattern. Prosecution and judicial
personnel have historically emphasized pre-service legal
education except during recent years in which there has
been a slowly increasing awareness of the need for minimal
in-service training. Legal training has traditionally been
provided at the university level following a minimum of two
to four years of pre-law liberal arts education. Police
and correctional personnel, on the other hand, have generally
received no Specialized pre-service training. Those who
receive training usually receive it after being employed,
and they usually receive it at their employer's expense.
Further, police and correctional officer training is usually
provided by the employer or a group of employers.

The independence of the various functions only
compounds the training and education problem. The current
training and daily operating procedures of police officers,
prosecutors, judges and correctional personnel isolate these
functional areas one from the other. Insufficient contact
between and among personnel in the different functional

areas of the system results in a seriously limited *

11

understanding, within each area, of the roles, problems,
failures and successes of those in the other areas of the
system, with consequent inefficiency in the use of public
resources.

College-level educational programs, both degree
and non-degree, have begun to make an impact on the cor-
rectional and police functions of criminal justice, but
the impact is as yet hardly significant. One police

educator describes it:

. . . there have been, and there continue to
be, barriers to an Optimum relationship between
these two great and essential institutions--i.e.,
universities and law enforcement agencies. As a
result of those barriers . . . neither police
leadership nor the academic community, nor society
aS a whole, have been able to real%ze more than a
fraction of the potential benefit.

The President's Commission on Law Enforcement and

Administration of Justice in 1967 was even more blunt:

While considerable progress has been made in
recent years on the deveIOpment of training programs
for police officers, the total training effort in
this country, when related to the complexity of the
law enforcement task, is grossly inadequate.

The Corrections Task Force Report of the same com-

mission stated:

 

6Franklin M. Kreml, "The Role of Colleges and Univer-
sities in Police Management," The Police Yearbook 1966
(Washington, D.C.: International Association ofCfi1efS of
Police, Inc., 1966), p. 34.

7The President's Commission on Law Enforcement and
Administration of Justice, Task Force Report: The Police
(Washington, D.C.: U.S. Government‘Printing Office, I967) p. 36.

12

In many areas, corrections remains in the hands
of persons without adequate qualifications or
training for their tasks. Administrators, even in
some cases individual wardens or probation super-
visors, are, as noted, often appointed largely on
the basis of political considerations. Standards
for appointment, and education and training programs
to meet them, are badly needed.

At present, the meager training which is avail-
able is mostly of an in-service variety. There is
need for advanced training in universities.

University level training and educational programs
for criminal justice personnel are few in number. Strong
feelings exist, both among the personnel of criminal justice
agencies and within the universities,9 for not working to-

gether to meet this need as illustrated by Dr. John Pfiffner:

The academic world is the protagonist [sic] of
the police. They have historically been at the
cpposite end of the spectrum. This polarization
occurs because the intellectuals are basically
anarchists at heart. They hate authroity and are
anti-police. Parenthetically, this chasm between
these two great socially influential camps is
diminishing, due to the professionalism of the
police. Not only in the police training academy
have great advances been made, but individual offi-
cers have raised their level of academic achieve-
ment through concerted effort of the university. .
. . The police have a legitimate function in the
social planning process. By the nature of their
responsibilities they are practical sociologists.

 

8Ibid. Task Force Report: Corrections, p. 16.

 

9Peter Lejins, Introducing a Law Enforcement Cur-
riculum at a State University, U.S. Department of Justice,
LEAA, National Institute of Law Enforcement and Criminal
Justice (Washington, D.C.: Government Printing Office, 1970.

13

The police officer must be trained, his attitudes

must be reoriented to consider the social in-

fluences he brings about.10

The lack of or low quality of training and educational

programs, both pre-service and in-service, is critical in
terms of current efforts to improve our dysfunctional and
faltering system of criminal justice. Better training and
education are essential foundations for modeling and re-
shaping our agencies of social control. Few changes in our
system can be as effective as recruiting and selecting well-
qualified applicants for our criminal justice agencies and
providing adequate training to permit high-level job per-

formance.

Statement of Problem

The problem identified for this study is the need
to deve10p a model curriculum and rationale for a manpower
development support system designed to serve the criminal
justice agencies of a large multi-county metr0politan region.
By serving the agencies, it is intended to meet needs of per-
sonnel both for performing the job and for growth as indi-
viduals; to meet agency and system needs for growth and

change; and to insure continual revision, growth and change

 

10Taken from a private interview with Dr. John Pfiff-
ner by Drs. Kenney and Whisenand for publication in Kenneth
Coon, et al., "Urban Planning and the Police," Chapter One of
John P. Kenney and Paul M. Whisenand, The Environment and
Dynamics of Police Administration: Some Considerations (Long
Beach: Institute for PoIice Studies, California State College,
1969), p. 15.

 

14

in institutional or agency policy, procedures and practices.
The manpower development support system consists of four
centers located at four community colleges and coordinated
by an institute located at~a major university within the
metrOpolitan region. The institute is thus a consortium

of major public and non-public universities and colleges
within the region.

The support system is organizationally designed
to meet the total continuing education and training needs
of the local criminal justice agencies within the region.
The focus of this study is on the curriculum needed to meet
the personnel deve10pment needs of the employees, the
agencies, and the criminal justice system. Where existing
training and educational programs exist, an effort will be
made to relate them to the needs of the personnel, the
agencies, and the system in order to avoid unnecessary and
undesirable duplication.

Essential components of the curriculum design are
provisions for inter-functional training, continuing educa-
tion courses and individualized programming. It is also
essential that opportunities for re-cycling be available
and that offerings be rather frequently repeated, especially

11

for new employee training. Employment of modern educational

technology and instructional techniques must also be provided

 

11This is becoming increasingly important as Michigan,
beginning January 1, 1971, required all new police officers
to complete an induction level course before they may perform
police duties for any political subdivision.

15

for in the curriculum design.

Objectives of Study

The primary objective of this study was to develop
a model curriculum to meet the total personnel development
needs of criminal justice agencies serving a large metro-
politan region in the United States. _It was assumed, as
described below, that the organizational support system for
a training and continuing education program existed, though
it was acknowledged that certain organizational, staffing,
and financial changes may be made in the support system
depending on the curriculum which is deve10ped. The major
criterion for this primary objective was that the curriculum
as designed would induce change in the relatively autonomous
functions of the criminal justice "system" toward a more
synchronized functioning of that system.

Essential instrumental objectives were (1) to iden-
tify and define continuing education needs of the criminal
justice personnel and agencies are related to

(a) providing better individual job performance,
(b) enriching the lives of the personnel as individuals,

(c) improving the system in terms of its overall goal
achievement,

and (2) to deve10p the rationale and phiIOSOphy supporting

the model curriculum.

16

Setting of Study

 

Fragmentation of political subdivisions in the seven-
county metropolitan Detroit area has substantially contributed
to the complexity of the training and continuing education
needs of criminal justice agencies in the region. Regional-
ization problems in terms of providing training and educational
services for criminal justice personnel would be reduced if
only one governmental or political subdivision were involved,
but this was not generally considered a desirable alternative
by political leaders in the region. Table 1 illustrates the
fragmentation phenomenon among the region's police agencies

and the relatively high proportion of small agencies.

Table 1. Police and sheriffs departments by number of part—
time and full-time Sworn personnel as of 1969 for
the 240 political subdivisions comprising the seven-
county Detroit MetrOpolitan Region.

 

 

Numbers of Political Subdivisions
by Numbers and Time of Sworn Personnel

 

County None Part-Time
Only 6- 21- 51- 101- 500

(Villages) 1-5 20 j 50 100 500 + Total
Livingston 15 l 3 l l 21
Macomb 9 2 5 3 3 4 2 28
Monroe 15 4 3 1 l 24
Oakland 21 4 7 l4 9 3 4 62
St. Clair 19 4 5 2 l l 32
Washtenaw 15 2 6 2 1 l l 28
Wayne 5 l 5 7 10 12 4 l 45
Region
Totals 99 18 34 29 26 22 11 l 240

 

 

 

 

 

 

 

 

 

 

17

Region One in the State of Michigan is a State
and Federally recognized planning region12 and consists of
the following seven counties:

Livingston

Macomb

Monroe

Oakland

St. Clair

Washtenaw

Wayne

Region One is also known as the Detroit Metro-
politan Region. Its 240 political subdivisions (cities,
villages, townships, and counties) in 1970 contained 4,688,712
residents with 1,492, 914 of that number located in the city
of Detroit. The Detroit holocaust of 1967 remains in the
Region's recent history as a grim reminder of the many con-
verging complexities of Metr0politan America of which crime

is merely a symptom.13 The continually increasing crime

 

12The State of Michigan was divided into 14 planning
regions by a 1968 executive order of Governor George Romney.
Each region was established considering socio-economic, employ-
ment, tranSportation, etc., factors. These planning region
designations were subsequently used to designate planning
regions for purposes of the Safe Streets Act.

13The Detroit riots of 1967 dramatically demonstrated
the need for regional c00peration between the suburban politi-
cal subdivisions and the central city or megacentropolis.
During the intervening years since the riot, several of these
same suburban communities have experienced racial disturbances
and college demonstrations which have reinforced the need for
interjurisdictional cooperation and support. For an excellent
treatise of regional approaches to metrOpolitan problems see:
John C. Bollens and Henry J. Schmandt, The MetrOpolis. (New
York: Harper and Row, 1965). A Specific case study of the
metrOpolitan approach to regionalism is: Harold Kaplan,
Urban Political Systems: A Functional Analysis of Metro Toronto.
(New York: Columbia University Press, 1967).

 

18

rate of the Region also attests to the need for concerted
community and national efforts to reduce the urban blight.
Within the Detroit MetrOpolitan region, hereinafter
referred to as "the Region," there are being established
four "Centers" and one "Institute." The Centers will be
sub-regional, semi-autonomous training and continuing educa-
tion resource centers located within selected community
colleges.14 Each Center will provide the following services
to criminal justice personnel and agencies within the Region:
(a) A criminal justice library
(b) Applied educational and training research support
(c) Career counseling
(d) Closed circuit television
(6) Computer access for
(l) Gaming-simulation instruction
(2) Computer assisted instruction
(3) Information retrieval

(4) Management and technician instruction

(f) Training and continuing education courses.

Each center will have a full-time resident staff to
coordinate and administer the services. Instructional staff

will generally not be maintained at the Centers.

 

14The Wayne County Center will be a consortium of
four community (public) colleges located in Wayne County and
possibly linked to the Wayne State University Division of
Urban Extension.

19

The Institute will be a consortium of universities
and colleges in the Region. Its administrative center will
be located at one of the major universities, probably Wayne
State University. The Center for the Administration of
Justice, a part of the Wayne State University College of
Law, will be administratively linked to the Institute and
will assume responsibility for the Continuing Legal Educa-
tion Program of the Criminal Justice Institute. The ser-
vices of the Institute will be

(a) To provide instructional staff for use by the Centers.
Approximately 50% of the instructional staff will be full-
time teaching professionals and the remaining 50% will be
practitioner professionals from the Region on sabbatical
leaves from their respective agencies for periods of time
ranging from three months to a year in length, to teach,
study, and research.

(b) To provide curricular assistance to the Centers.
Curriculum, media and other technical personnel will be
housed at the Institute to serve the Centers on a need basis.

(c) To provide regional coordination of the training.
The Institute will seek to coordinate course scheduling, the
use of instructional resources, etc., to maximize potential
services to the criminal justice field.

(d) To provide functional area assistance. Coordinators
with academic and occupational experience in the various

criminal justice functions will be retained to provide

.20

substantive inputs into Center programs.

(e) To deve10p instructional materials.

(f) To provide regionwide monitoring, evaluation and
certification of training and continuing education. The
objective of this service is for continual improvement and
updating of services.

The Institute and Centers will be Operated semi-
autonomously with each having a board of directors. Each
facility will be operating under a university, or a college,
board of trustees, but the board of directors' function is
to keep the facilities and curricula reSponSive to local
concerns. Federal financing with 25 percent local match
will be used the first two years to initiate the organiza-
tion. Figure 2 schematically depicts the organizational
structure which was assumed for this study.

The "Change Team" noted on Figure 2 was placed on
the organizational chart to depict its anticipated major
role in the continuing education and training system. The
Institute and Centers represent an effort to create change
through education in the criminal justice agencies and their
personnel by working from within the system. Numerous
changes have been advocated for the system from without the
system and have not proven to be very successful. Change
from within requires acceptance from within the system, thus
a change—oriented institution, which is assumed for this study,

must begin with accepted practices, customs and biases and

 

Corrections
Committee

 

 

Law Enforcement
Committee

 

 

 

Continuing Legal
Education Committee

21

 

 

Board

 

 

 

I’ll] /4 a: hl'"

’ ,//'/1 Directorar
// //

// //

K /
/
/ -
Director y]

 

 

/

 

 

 

 

”‘ '

 

SENCOG

Executive Committee

 

‘1

 

Public Safety Division

 

Change

Team

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Administrative .J_ 1
Assistant .i_i
Media 5
Materials Curricula
Law Enforcement Corrections Continuing Legal Education
Coordinator Coordinator Coordinator
Coordination
Macomb Oakland Washtenaw Waygo
Center Center Center Canter

 

 

Advisory Committees

 

 

Advisory Committees

 

 

Advisory Counitteoa

 

 

 

Advisory Committees

 

Figure 2.

Justice Institute and Centers

Assumed organizational plan for the SouthEast Michigan Criminal

 

 

.22

work towards a desirable goal. The change team is intended
to be comprised of three noted change strategists serving

as technical staff to monitor evaluative data and communica-
tions essential to provide advisory assistance to staff
directing change efforts. Obviously the curriculum will
become the primary change device. The change team will
structure feed-back mechanisms and constantly evaluate all

activities.

Scope and Limitations of Study

The problem selected for this study was essentially
a case of curriculum deve10pment for personnel deve10pment

and institutional change.15

It is a reSponse to a seven-
county metrOpolitan region's need for an integreated plan
for continuing education throughout its criminal justice

agencies. The problem was and continues to be real, thus,

the constraints16 will not be dealt with in hypothetical

 

5Direct institutional change is not an intended goal
of the Institute and Centers, but it is expected that curri-
culum designs highly conducive to change phenomena from both
internal and external sources will greatly facilitate major
institutional change, gradually rather than cataclysmically.
Two general references on change are: Warren G. Bennis and
others, The Planning of Chan e, 2nd Edition (New York: Holt,
Rinehart and*Winston, Inc., $569); and Ronald Lippit and others,
The gynamicsyof Planned Change (New York: Harcourt, Brace &
Wor d, Inc., l§58).

16The political realities existing in the Region were
a force acting upon the study and did have impact upon the
curricula models, criteria and rationale developed. To pre-
cisely identify these political realities is difficult and it
is even much more difficult to attempt to quantify their impact
upon the curriculum deve10pment. Political realities were
dealt with in this study just as any other constraint or guid-
ing factor. No efforts were made to conceal or ignore them.

.23

fashion. Certain assumptions were made as a foundation for
the study. They provide a framework for the training and
education organization, as will be explained.

The diversity and volume of types of personnel in
the agencies of criminal justice in the metropolitan Detroit
region prevented the making of an exhaustive task-oriented
curriculum deve10pment study. The curriculum framework was
deve10ped, however, as was the rationale and phiIOSOphy for
its organization, staff, programs, and courses. In the
judgment of this investigator the mushrooming field of
criminal justice provides insufficient and inadequate curri-
culum experience from which to draw the needed direction
for complete and detailed specification of curriculum con-
tent.

Time limitations also dictated the scope of the
study. Each of the seven counties was progressing at its
own individual rate of speed in becoming involved in the
regional effort. Thus, some of the counties were facing
curriculum problems while others were just beginning to face
the organizational and financial problems of development.
Political, inter-agency, interjurisdictional and financial
characteristics of each county generally determined its rate
of progress toward the regional goal of creating a personnel
development capability. The varying rates of progress among
counties thus posed another limitation on the study. For

purposes of this project, however, the necessary basic

24

organizational structure was assumed to exist.

It is also important to acknowledge the role of
committees, various agency personnel, other planning staff
members and various public officials who were active in the
deve10pment of the Institute and Centers. This study was
designed to augment and enhance the efforts of these others
to add a curriculum development phase that would not have
otherwise been included. By adding a separate curriculum
component the total project became a mutually advantageous,

shared effort.

Assumptions

 

1. It was assumed that in a state the size, pOpulation,
and density of Michigan, the training and continuing educa-
tion of criminal justice personnel cannot best be done on a

17 This acknowledges that political sub-

local agency basis.
divisions are fragmented and that the majority of them are
too small to be able to provide comprehensive training and
continuing education services to their own personnel.

2. It was assumed, further, that citizens would prefer
that units of local government should provide their own

pre-service and in-service training programs or at least be

able to have some reSponsibility in the control and

 

17This assumption does not, however, assume nor urge
that these small political subdivisions should be amalgamated.
Little, if any, economies-of-scale research has been done
involving criminal justice services and size of jurisdiction.

f25

direction of such programs which is generally not permitted
or feasible if provided by the state.

3. It was assumed that there is a continual, life-long
need for training and continuing education for personnel
comprising the criminal justice agencies.

4. It was assumed that no constitutionally established
form of metropolitan government exists, or is likely in the
near future to exist, within the region.18

5. It was assumed that political subdivision fragmenta-
tion is a major problem in terms of systematizing criminal
justice services.

6. It was assumed that a region-wide "Special service
district" would serve as a systematizing vehicle for criminal
justice services in much the same way as a metrOpolitan form
of government would do.

7. It was assumed that local, state and federal officials
are desirous of the criminal justice system approach to the
organization of police, courts, corrections, and prosecution
agencies.

8. It was assumed that the organizational framework for
providing the training and continuing education programs,
which are the objective of this study, has been established

and generally defined. This framework, however, is not firmly

 

18The SouthEast Michigan Council of Governments was
not perceived to be a form of government. It was perceived
as being an alternative to a metropolitan form of government
or political subdivision consolidation or amalgamation.

26

entrenched nor so develoPed that major change cannot be made
before the organization and curriculum become operational.
9. The practices, organizational structure, policy_and
staffing patterns of agencies of criminal justice are far
from perfect and they are not likely to improve by them-
selves. The best route to improvement is to work with the
agency administrators and personnel through education for

long range improvement.

Significance of Study

If we do not solve what you call the problem
of criminal justice, will anything else matter
very much?

--Chief Justice Warren Burger19

Systemically-oriented criminal justice training and

”continuing education institutions do not exist in the United

States.20 As Chief of Police Fred Ferguson, of Covina,

California, points out:

. . . in my Opinion, no real training program
exists which teaches policemenfi to properly under-
stand and to appreciate the social, economic,
ethnic and cultural differences in peOple and to
consciously exercise discretion relative to those
differences. . . .

The number one problem in police education and
training then, as I see it, is how to prOperly

 

19"Penal Reform: A Crucial Priority," The Wall Street
Journal, September 29, 1969, p. 18.

20Bruce Olson, The Stud of Law Enforcement Training
in the Southeast Michigan Six-County RegIOns IDetroit,
Michigan: MetrOpolitan Fund, Inc., January, 1968).

 

 

 

27

teach officers to respect and utilize the cultural
differences in peOple.2

Accordingly, no satisfactory model curriculum exists for
implementing the criminal justice approach to personnel
development.

The entire problem of training, or more broadly--
personnel deve10pment--is of major significance nationally.
It is recognized as an essential tool for creating and
inducing organizational and systemic change. Such potential
for achieving the advantages, as well as for creating new
problems, is suggested by Schein:

The training itself unleashes some forces
within the organization whidiproduce pressures
towards change in other parts of the organiza-
tion, changes which those parts may not be
prepared to coPe with and interacts with recruit-
ment, selection,and job design. . . . 2

Bienvenn also recognizes the potential of training

for change:

In addition to Specific job or task effective-
ness, the purpose of training becomes one of
developing and preserving ability to adapt to
change, breadth of knowledge, conceptual under-
standing, self-motivation, creativity and imagin-
ation, self-confidence, and independence in work--
and of instilling in the employee an attitude of
confidence and security which permits concentra-
tion on superior job performance.2

 

21Fred Ferguson, "The Number One Problem: What is

the Number One Problem in Police Education and Training as
You See It?" The_Police Chief, August, 1970, p. 16.

2292. cit., Schein, p. 41.

23Bernard J. Bienvenn, New Priorities in Training

(New York: American Management,_fnc.,1969), p. 81.

28

Another dimension of the significance of the study
is quality. Total and continuous training and education is
being recognized as a vital necessity for criminal justice
personnel. Few if any programs in existence today are
”total" in sc0pe, that is, designed to relate to the
trainee's total life and job needs. Further, few programs
are continuous or designed to keep the trainee abreast of
changes and new deve10pments. Bienvenn24 develops the

concept of continuous and total training:

The concept of training, therefore, as held
and implemented in many organizations, must give
way to the concept of deve10pment, or total
training. . . . The whole process of training
should have total training as its overriding
objective, and this concept should be thought of
not as a separate phase of training but as play-
ing a significant role in all parts of the
process.

25

The Police Task Force Report also identifies the

need for total training:

Current training programs, for the most part,
prepare an officer to perform police work
mechanically, but do not prepare him to under-
stand his community, the police role, or the
imperfections of the criminal justice system.

While a liberal education provides the foun-
dation for enlightened leadership, it cannot
totally provide the required specialized know-
ledge of police administration.

 

24Ibid., p. 80.

25The President's Commission on Law Enforcement and
Administration of Justice, Task Forge Report: The Police
(Washington, D.C.: U.S. Government Printing Office, 1967)
pp. 138 and 141, respectively.

 

29

The demands on administrators, supervisors,
or specialists also require advance skills not
developed by basic police training and yet, only
a few large metropolitan departments provide even
a limited amount of executive training. To
require vocational training for entry level offi-
cers, but not for specialists, supervisors, or
administrators within a department, is incongruous.

The vital need to develop a model curriculum and sup—
portive rationale for developing criminal justice personnel
is obvious to one viewing the problems of the system and of
individual agencies. It is even more obvious when the
possibility is considered that the lack of training and
education on the part of criminal justice personnel may
actually be contributing to many of the current social prob—
lems of riots, race relations, student demonstrations and

other forms of civil disobedience which are symptomatic of

social change.

Definition of Terms

Criminal Justice Systems

"Criminal Justice" during the past decade has come
to mean the government system and/or process by which control
of deviancy is exercised. It generally includes such services
as police, prosecution, courts, corrections, probation, and
parole. Prior to the past decade, "criminal justice" usually
referred only to the courts which "administered criminal
justice," but it is now being viewed as a lineal process for

offenders, or in the case of repeat offenders, a cyclical

.30

process. The inter-dependency and inter-relationships of
the various functions or processes to each and all others
naturally suggest a "systems" approach.

Broadly defined, "Criminal Justice System" refers
in the aggregate to those public agencies and officers who
are responsible for the fragmented apparatus society uses
to enforce the dominant standards of conduct deemed neces-
sary by legislative majorities to protect individuals and

various groupings of individuals.26

American Philosgphy of Justice

 

Our system of justice is primarily an adaptation of
the English (Anglo-Saxon) system of justice; however, signi-
ficant differences justify an acknowledgment that there is
an American system of justice possessing its own philosOphy.
The most significant aspect of the American system is the
provision for protecting the individual, which is built into
the process of determining guilt and imposing punishment.
Efficiency and effectiveness are deliberately sacrificed to
protect the individual and to preserve local autonomy within
the criminal justice system. Authorities generally vary in

their Opinion of the necessary balance among the rights of

 

26Examples of such groupings are the family, the
"community," whether it be a city, village, township, parish,
county, etc., and the work organization. Each of the group-
ings given as examples have a certain status in law for
promulgating and enforcing group-set standards.

31

the individual, the powers of local government, and the
overall effectiveness of the system and its processes.

This aSpect of the American philoSOphy of justice is the
foundation of our system. Changes in the system must be
scrutinized in light of their potential effect upon this

foundation and the "balance" it seeks to maintain.

The President's Commission

 

In 1965, President Johnson, by Executive Order 11236,
established a Commission on Law Enforcement and Administra-
tion of Justice. It was chaired by Attorney General Katzen-
bach. Several task forces dealing with specific problems
or functions of criminal justice were created. These task
forces issued reports which are available for public use,
and in 1967 the Commission presented its general report to
the President, The Challenge of Crime in a Free Society.

The report includes recommendations of that blue ribbon

committee for reducing the crime problem in America.

Crime Control Act

 

The Crime Control Act, passed by Congress in 1968,
officially titled "Omnibus Crime Control and Safe Streets
Act of 1968," was designed to provide federal aid to local
efforts toward: (1) reducing crime on the streets; and
(2) improving the criminal justice system. It also created

a new office in the Department of Justice entitled the

32

"Law Enforcement Assistance Administration," commonly referred

to as LEAA.

Region One

By Executive Directive Number 1968-1 dated February 12,
1968, Governor Romney divided Michigan into 14 planning and
development regions. The Michigan Office of Criminal Justice
Programs, under the administration of Governor Milliken,
directed that these planning and development regions would
be recognized for purposes of criminal justice planning.
"Region One" was defined to include Livingston, Macomb,
Monroe, Oakland, St. Clair, Washtenaw, and Wayne Counties.
The Region has approximately 4.8 million residents in an
area of 4,600 square miles. Its political subdivisions are
counties, cities, townships, villages and several special

purpose service districts created by the Michigan Legislature.

Corrections Function

The corrections function in Michigan is generally
considered to be a state responsibility, but very signifi-
cant county and city correctional efforts exist. The county
sheriffs have certain correctional responsibilities along
with other police and court responsibilities, and cities
exercise major correctional responsibilities. "Corrections"
usually refers to detention, punitive, and rehabilitative

roles, but the relative predominance of roles varies widely

33

among units and levels of government, as well as regionally

within the State. Probation and parole services are usually
considered a part of the corrections function, but they are

frequently treated as elements of the court's function

within the criminal justice system.

Court's Function

 

"

The court's function is the responsibility of the
Michigan Judicial System. The 1963 Michigan Constitution
created a relatively unified judicial system under the
"general superintending control" of the Supreme Court. It
must be pointed out, however, that the Michigan Judicial
System has many responsibilities and duties beyond its
criminal justice obligations.

The state judicial system is composed of the Supreme
Court, the courts of appeals, circuit courts, probate courts,
Recorders Court (Detroit), Common Pleas Court (Detroit),
district courts, and municipal courts. Court-appointed
counsel is considered a part of the court function in
Michigan, even though some legal aid and private defender
agencies exist. Probation and parole, as previously noted,
are frequently considered elements of the court's function

although more commonly classified as corrections.

534

Police Function

 

Certain policing functions exist at all levels of
government whether it be federal, state, county, city, vil-
lage, township, or special units of government such as a
public authority or a state institution.‘ Primary responsi-
bility for policing is reserved to the state, but the res-
ponsibility is generally delegated in varying degrees to
the local units of government. Counties usually exercise
their police authority and responsibilities through the
elective office of sheriff. Charter townships are required
to provide police services and usually do so by providing
a police department of their own or by contracting for
police services from another governmental unit (usually
the county sheriff). Non-charter townships usually have
either (1) no police service, (2) a constable who performs
very limited police services, or (3) a contractual arrange-
ment with another governmental unit, depending upon their
particular need for police services. City units of govern-
ment usually have permanent, full-time police departments
ranging in size in relation to city population and size.
Villages usually provide some type of police service varying
from part-time police, volunteer police, or marshals, to
small full-time police departments, depending upon the size
of the village and its need for police service. County
sheriffs and the Michigan State Police have full and original

policing authority (by state statutes) within the county and

~35

state, respectively, and provide overlapping and frequently
duplicate coverage.

Police services vary widely but usually include
crime prevention, the detection of crime by police observa-
tion or citizen reports, offense investigation, offender
apprehension, and preparation for prosecution. Many other
services of a non-criminal nature are also provided by the

police.

Prosecution-Function

 

Prosecution is also a responsibility of the executive
division of our government. Prosecutions under state or
county criminal statutes are handled by the county prosecu-
tor or special.prosecutors assigned by the Attorney General's
Office at the state level. Most criminal prosecutions occur
at the county level and are handled by the county prosecutor,
an elected officer of county government. Prosecution under
city, village, or township criminal statutes is usually
handled by an attorney retained by the responsible unit of
government.

Prosecution duties at the county level are fairly
uniform in that the prosecutor serves as the people's rep-
resentative in criminal cases before the courts. The
quality and quantity of services provided by prosecutors
vary widely depending generally upon the size of the p0pula-
tion served. The prosecutor also has duties of a non-

criminal nature.

System

"SystemPrefers to a purposeful organization of
functions and elements united and ordered to accomplish
specific objectives. This organization may consist of
several sub-systems and functions which are relatively
independent but have certain ties, relationships, or duties
to other sub-systems and functions. Each function in turn
may be composed of several relatively separate units
frequently called elements. In terms of criminal justice,
the entire organization of components in the process make
up what is referred to here as a "system." It must be
emphasized, however, that the system concept, when applied
to criminal justice, is relatively new and will require
additional definition before practitioner and public accep-
tance is complete. The term "process" more accurately
describes what is being referred to as a "system" of criminal

justice.

Urban Area

"Urban Area" refers to those geographical areas
populated to the degree that extensive open areas are not
frequently found. "Urban area" is generally considered
synonomous with the term "metr0politan area," although the
latter more precisely refers to a composite of adjoining

political subdivisions with a large central city.

37

A "megalOpolitan"27

area is a grouping of adjoining metro-
politan areas. A "megacentropolis" is the central city in

a megalopolitan area.

Urban Fringe

The transitional zone between the urban and the
rural areas is referred to as the urban fringe. Usually
the characteristics of both rural and urban life are found

in this transitional area.

Comprehensive Criminal Justice Planning

Currently the United States has no validated models
of fully comprehensive planning for crime control. Compre-
hensive planning objectives should be clear in that plans
must consider and represent all aspects of criminal justice
administration such as police, courts, corrections, prose-
cution, citizen action, and crime prevention. Comprehensive
planning must also integrate the work of all agencies and
levels of government having criminal justice responsibilities
in the planning jurisdictions. A properly developed and
accepted comprehensive criminal justice plan will provide
a framework for action programs and an improved capacity
for coordinated regional and local action programs. It

must also be realistic, practical, and meaningful. The

 

27See Bollens and Schmandt, Op.Cit., pp. 37-39,
582-584.

;33

planning process usually includes the following components
or steps:

(1) Identify the problems

(2) Identify the goals and objectives

(3) Identify resources

(4) Develop alternatives for problem solution

(5) Weigh alternatives and make recommendations

(6) Establish priorities

(7) Implement decisions

(8) Evaluate and revise.

Education and Training

 

The term "education" is frequently used synonymously
with "training" by some authorities, but is generally dis-
tinguished by the majority of authorities. For purposes of
this report, "education" refers to all purposeful, intentional
teaching and learning with a design that prepares individuals

to be individuals in a society. Training is that component

 

of education that is intended to prepare individuals to
assume certain task-oriented roles in industry, business,
public service, the professions or elsewhere. Training is

defined to be a pert of education, and education encompasses

 

much more than training.

Manpower Development

"Manpower Development" is broader than training and

differs from both education and training in terms of

39

objectives or goals. The objective of public service
management and administration is to deve10p manpower to
(1) do specific work-tasks, (2) be prepared for new, addi-
tional, and/or higher level job assignments, (3) mature
and deve10p as individuals, and (4) build a stable organ-
ization of individuals to serve the public. To achieve
these objectives, manpower deve10pment involves colleges,
universities, employer-Operated training programs, and
numerous continuing education institutions in all forms

of training and education.

MLEOTC

The Michigan Law Enforcement Officers' Training
Council was created in 1965 by the Legislature. It admin-
isters a voluntary state program which sets police training
standards, provides some training programs, and disburses
limited state funds for the purpose of police training. In
August, 1970, Governor Milliken signed into law amendments
which make mandatory six weeks of training for all new
police officers in police agencies which employ more than
three men. Public police officers are now, for the first
time in history, required to be "licensed" by the State of

Michigan.

40.
Office of the Criminal Justice Programs

This is the state agency designated by the Governor
to allocate funds to local units of government under the
Omnibus Crime Control and Safe Streetstct of 1968 for the
State of Michigan. Primary funding for the Region One
training capability is expected to come from this source.
Discretionary funding is also available directly from the

Department of Justice under the Safe Streets Act of 1968.

Vocational Education and Training

Education and training which is predominantly
occupational in orientation is generally deemed to be
vocational education. Professional schools are defined to
be a form of vocational education for this study. The pro-
portion of instruction devoted to occupational performance
in relation to that devoted to liberal studies usually
determines whether a course or program of study is deemed

to be vocational or not.

Organization of Study

Chapter I is an introduction to the study report.
It identifies the problem, its significance and sc0pe, the
objectives of the study, assumptions and definitions.
Chapter II is a review of selected literature. The
primary sources are reports of significant curriculum design

and research efforts. Secondary sources are reference items

41

concerned with factors which determined or influenced curri-
culum decisions in the various models employed.

The study design, presented in Chapter III, includes
a p0pu1ation description, a task analysis, a personnel
classification scheme, and the identification and delineation
of significant influence variables.

Chapter IV includes a description of the techniques
used to analyze the tasks identified in the personnel
sampling phase, a description and explanation of the pro-
posed model curriculum critera supporting rationale, and
other findings incidental to major study objectives.

A summary of the problem, methodology, and findings
and the conclusions and implications of the study for the
criminal justice system, the training and continuing

education field, and other studies is presented in Chapter V.

CHAPTER II

REVIEW OF LITERATURE

The primary sources used to create a foundation for
this study are reports of research, studies, and significant
field applications in developing curriculum for the criminal
justice functions. Secondary sources were reference items
focusing on the various factors which determine or influence

curriculum deve10pment decisions.

Introduction

 

Comprehensive criminal justice training and continu-
ing education curricula do not exist in the United States.
Training and continuing education programs and courses for
the field, almost without exception, focus on the separate
functions of criminal justice--the police, courts, prosecu-
tion and corrections. Accordingly, the only curriculum
research available, scarce though it may be, is functionally
oriented. This study is directed specifically at system-

oriented training and continuing education.

4:2

43

The Consolidated Federal Law
EnforcementiTrainingpCenter
Curriculum Study.-

 

 

 

 

In September, 1967, a recommendation by the U.S.
Bureau of the Budget led to creation of the Center in which
the police personnel of about twenty federal agencies
could receive required training in a single, modern training
facility designed to meet the agencies' individual and
collective needs. A "systems approach" was selected as
the most effective and efficient technique of deve10ping
curriculum within the Center. The technique was adapted
from an instructional system design used by the Army
Security Agency Training Center and School at Fort Devens,
Massachusetts. The original design is reproduced here as
Figure 3. The system design accepted by the Task Force is
represented in Figure 4.

The "systems"2 approach is oriented toward job needs
with emphasis on what material students need to learn to
perform Specific tasks, what facilities best provide a
setting for the necessary training, and what instructional

methods and media best instruct the student. The focus is

 

1U. S. Civil Service Commission, Bureau of Training,
Application of a Systems Approach to Training: A Case Study.
Training Systems and Technology Series: No. HYWaShington,
D. C.: Government Printing Office, 1969).

szo general references to the systems approach are
(l) C. West Churchman, The S stems A roach (New York: Dell
Publishing Co., Inc., 1968 , Bela H. Banathy, Institu-
tional Systems (Palo Alto, California: Fearon Publishers,
1968).

44

 

Collect

 

 

 

 

 

Job Data

 

 

Identify
Training
Requirements

 

 

 

 

 

 

 

 

 

 

 

Select Select Establish
Course Instructional Course
Content Strategies ' Prerequisites

 

 

 

 

 

 

 

 

 

 

 

 

 

Formulate
Performance
Objectives

 

 

 

 

 

 

 

 

 

 

 

Develop Develop Determine
Training ' course Equipment
Aids Outlines Requirements

 

 

 

 

 

 

 

 

 

 

 

 

 

‘ Determine
Instructor

Requirement

 

 

 

 

 

Develop
Instructional
Materials

 

 

 

 

 

 

 

Analyze
Evaluate Conduct 4; Test

Instruction Instruction ‘ Results

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Followup
Student

Performance

 

 

 

 

 

 

 

Figure 4. Instructional System Design as revised and used by the Federal Law
Enforcement Training Center Curriculum Task Force, Washington, D.C.

Source: U.S. Civil Service Commission, Bureau of Training, A lication
of a Systems Approach to Training, Training Systems and TechnoEogy Series:
No. as ngton, .C.: vernment Printing Office, 1969) Exhibit B,

p. 7.

 

45

 

 

 

Collect
Job Data

 

 

 

 

 

 

 

 

Identify
Training
Requirements

 

 

 

 

 

 

 

 

Select
Course
Content

 

 

 

 

Select
Instructional
Strategies

 

 

 

Establish
Course
Prerequisites

 

 

 

 

 

 

 

 

Formulate
Performance
Objectives

 

 

 

 

 

 

 

 

Develop
Training
Aids

 

 

 

 

DeveIOp
Course
Outlines

 

Determine

Equipment
Requirements

 

 

 

 

 

 

 

 

Determine
Instructor
Requirement

 

 

 

 

 

Develop
Instructional
Materials

 

 

 

 

 

 

Evaluate

 

Instruction

 

 

 

 

Conduct
Instruction

 

 

 

 

 

 

 

 

 

 

Followup
Student
Performance

Analyze
Test
Results

 

 

 

Figure 4. Instructional System Design as revised and used by the Federal Law
Enforcement Training Center Curriculum Task Force, Washington, D.C.

Source 3

3?_3_S'stems

No.
p. 7.

U.S. Civil Service Commission, Bureau of Training, A lication
roach to Trainin , Training Systems and TechnoEogy Series:
Was ngton, D.C.: Government Printing Office, 1969) Exhibit B,

 

 

 

 

 

46'

on the student and on what he needs to learn. Thus the Task
Force examined job tasks of the personnel groups or classi-
fications being studied--patrolmen and investigators. Task
descriptions were obtained from experienced personnel and
then analyzed and grouped.3

The task descriptions were then examined to deter-
mine which tasks should be supported by formal training.
The Task Force noted that this step would probably be crit-
ical and more complex in large organizations or those
organizations in which the initial assignments of new
employees vary significantly.4 Behaviorally stated terminal
performance objectives5 were then formulated for each task.

Each terminal objective stated

(1) the specific behavior the trainee is to demonstrate
at the end of the training

(2) the specific conditions under which he is to perform

 

3U.S. Civil Service Commission, 0 . Cit., p. 3. The
Task Force found that the task descriptions developed during
interviews with supervisory personnel for the position being
studied were most complete and accurate.

41bid.

5Ibid., p. 1. These objectives describe the behavior
the student must be able to demonstrate at the end of the
training. They are statements of student performance under
actual job conditions and provide criteria by which satis-
factOry performance can be measured.

A typical example of a terminal performance objec-
tive is as follows:

Given a speedgraphic camera and a series of accident

scenes and crime scenes under varying conditions of

light and locale, the student will be able to take

photographs for use as evidence. Eighty percent of

the photographs will meet the standards of composi-

tion and quality set forth in the Training Guide.

-47

(3) the criteria for determining satisfactory performance.

Groupings of tasks then became necessary for the
development of logical instructional patterns. Eventually a
hierarchy of job tasks deve10ped. Interim, subordinate,
enabling, or intermediate objectives were develOped or
identified as terminal performance objectives were defined.

Prerequisites were identified and clearly defined
for the study as were the knowledge and skills which were to
be possessed by the student at the beginning of the training
program. The complexity of these prerequisites was a prob-
lem for the Task Force as each agency's entrance qualifica-
tions varied.

Terminal performance objectives that were not
directly derived from or related to a job task description
were deve10ped for those non-task-oriented areas of knowledge
and skill that must be acquired by the trainee or student.
Terms such as "working knowledge," " familiarization," and
"appreciation" crept into these non-task-oriented objectives
and were difficult to c0pe with in terms of deve10ping per-
formance criteria.

The last phase of the process was to develop the
training course outlines, identifying for each instructional
unit the terminal performance objectives, interim objectives,
instructional methods, instructional media, and required

time for instruction.

48

The study, although not comprehensive for the law
enforcement field nor representative of some of the curri-
culum research problems in criminal justice training and
education, does represent a major step in the field as it
is one of the first applications of a "systems approach" to

training used for any of the criminal justice functions.

A_§easibility Study to Create
3:TrainingCenter fer Law
Enforcement and Criminal Justicet
Personnel in the State of HawaiiU

 

 

 

A study was conducted by the Dillingham Corporation
to determine the feasibility of deve10ping a state training
academy and resource center for the entire criminal justice
system of the State of Hawaii, or, an academy and center
Operated by and for the Honolulu Police Department. A sub-
alternative of the latter alternative was to have a center
and academy Operated by the Honolulu Police Department for
all police agencies in Hawaii. Alternative #1 was generally
deemed most apprOPriate by the consultant as evidenced by

the following:

Many aspects of law enforcement and criminal
justice education lend themselves to the develop-
ment of a common core curriculum. The content of
the core can include the basic theory and goals

 

6Dillingham Corporation, AyTraining CenEer for Law
Enforcement and Criminal Justice Personnel: A Feasibility
Stud . A consultant's study for Chief of PO ice Francis A.
KeaIa, Honolulu Police Department (Beverly Hills, California,
March, 1970).

 

49

of a justice system, human relations, and
behavioral sciences. The drawing of experiences
from all agencies can give personnel a better
understanding of the interdependencies Of the
criminal justice system, illustrating how the
various parts fit together.* As it becomes more
apparent that it is feasible and desirable to
deve10p academic programs with a common core
curriculum for all components of the criminal
justice system, it will become feasible to
partially integrate the training programs of
the various criminal justice agencies.

The consultant used as a basis of his study the
personnel projections to 1995 of the various criminal jus-
tice functions and the total number of training program
hours required, based on these projections, to deve10p a
prOposed curriculum based on

(1) current levels of training in Hawaii and other
states

(2) observed trends in program development

(3) recommendations of the President's Task Force

Commission [sic]8 and others prominent in the

field of law enforcement and criminal justice.9

The limitations of the above sources as bases for
curriculum decisions were recognized by the consultant as
he stipulated that his major concern was with the quantita-

tive aspects Of the training problems. He recognized the

 

7Ibid., p. s.

8The prOper name is "The President's Commission on
Law Enforcement and Administration of Justice."

91bid., p. 18.

50

need for a thorough curriculum study.

A more definitive statement of training pro-
gram requirements is needed. Such an undertaking
will require an in-depth study of the roles,
functions, and tasks of personnel in the criminal
justice system, beginning with the police officer.
It is recommended that such a project be under-
taken and that on-going evaluations of training
curriculum be conducted to ensure its relevance.
The greater waste in training lies not as much in
training methods as in the curriculum content.
Whether you teach the wrong lesson by good methods
or bad, it is still the wrong lesson. It is still
100% waste.1

The consultant recommended that the following courses

be offered by the prOposed Center:11

Police:

1. Basic Recruit Course. The basic recruit train-
Ifig course currently consists of 535 hours and
is projected to 640 hours by 1975. Net "in-
class" hours as opposed to outdoor training are
approximately 415 hours now, projected to 480
hours by 1975. In-class hours are allocated
by general subject category as follows:

Net In-Class Hours

 

 

Surrent _l§75

Police Administration 64 64
Police Procedures 84 84
Law . 93 116
Investigation 44 52
Behavioral Sciences 26 52
Special Police Skills 104 104
415 480

It is assumed that field experience will be
interspersed with recruit training. The President's

 

loIbid., p. 18.

llIbid., pp. 19—23.

51

Task Force Report recommends that recruit train-
ing be spread Over a four to six month period

in order to incorporate supervised field train-
ing. The blending of field experience withv
classroom training can be accomplished in
several ways: the most apprOpriate way for
recruit programs in Hawaii will depend on budget
considerations, manpower needs, and the parti-
cular philosoPhies of those administering the
training programs.

Special Recruit Course - A. A separate recruit
training course for para-professional, community
service officers, and other supportive personnel.
It has been assumed that by 1980 a significant
number of new recruits will be of this category
to justify a specially designated course. The
delineation of a new level of police Officer
will relieve other Officers of lesser police
duties, tap a new manpower resource, and will
facilitate special programs as in model neigh-
borhood areas through the use of "safety aides"
who are included in this category. A course
consisting of 480 net in-class hours is projected
to begin by 1980.

Special Recruit Course - B. An abbreviated re-
cruit training course for officers with accep-
table pre-service education or experience. It
is expected that an increasing percentage of
new recruits will be of this category and that
by 1980 there will be a sufficient number to
justify a separate recruit course. A course
consisting of 300 net in-class hours is pro-
jected to begin by 1980.

Police Cadet. The basic course for cadets de-
signed to provide knowledge of police procedures
and to promote qualities of leadership and dis-
cipline required for police work. It is assumed
that this course will be provided prior to the
cadet's initial tour Of duty and that upon com-
pletion Of the cadet program the cadet will

enter recruit training. This course is projected
at 120 hours by 1975.

 

Recruit Refresher. .A refresher course for all

recruits successfully completing their probation-
ary period. This course is designed to reinforce
recruit training, to provide additional training
in specialty areas, and to serve as an evaluation

10.

11.

12.

52

period bridging the transition from recruit to
police officer. The course is projected at
120 hours beginning in 1975.

ngrol Refresher. An annual refresher course
for all Officers below the sergeant level. The
purpose of this course is to provide a period
of intensive inservice training to supplement
daily roll call training, to provide special
training for officers entering a new phase of
police work (such as traffic enforcement and
control), and to provide a forum for Officers
to interact with personnel of other criminal
justice agencies. This course is projected at
40 hours per class by 1975, increasing to 80
hours per class by 1980.

 

Police Su ervision - A. The initial course
36: all 0 ficers entering a first line super-
visory position. For purposes of calculation,
this was assumed to include all new sergeants.
The course is projected at 80 hours per class
for 1975, increasing to 120 hours by 1980.

Police Supervision - B. Annual refresher course
far all first line supervisory personnel.‘ For
purposes of calculation this is meant to include
all sergeants and lieutenants. The course is
projected at 40 hours per class.

 

Investigators' Training - A. The initial course
fOr 511 Officers entering an investigative posi-
tion. This is meant to include all new detec-
tives. The course is projected at 120 hours per
class by 1975.

 

Investigatgrs' Training - B. A 40 hour annual
refresher for all investigative personnel.

 

Police Management - A. Initial course for all
newly appointed management personnel, which for
purposes of calculation, includes all officers
in the ranks of captain and above. This is
projected as an 80 hour course to begin by 1975.

 

Police Management - B. An annual refresher-course
fer management personnel. This course is pro-
jected at 40 hours per class.

13.

14.

15.

16.

17.

53

Field Trainers - A. A course designed to
develop field trainers primarily to work with
new recruits during the field experience por-
tion of this training. The purpose of this
program is to deve10p personnel who are equipped
to evaluate the new recruit's progress and are
more likely to encourage positive attitudes
during this critical period of recruit training.
This course, consisting of 80 hours, is pro-
jected to begin by 1975.

 

Field Trainers - B. An annual refresher course
for field trainers. The course is projected at
40 hours per class beginning by 1975.

 

Trainers' Course - A. This course is designed
to provide instructiOn in the development of
lesson plans, teaching techniques, use of visual
aids, etc., for the non-professional, part-time
training staff of the training center. It has
been assumed that the permanent training staff
will be selected based on their professional
ability and experience and will have had suffi-
cient training prior to their appointment. A
course consisting of 120 hours per class has
been projected to begin by 1975.

 

Trainers' Course - B. An annual refresher course
for trainers consisting of 40 hours per class.
This course may include refresher training and
in-service workShOpS for permanent as well as
part-time training personnel.

 

Other Special and Technical Courses. Provision
has been made to accommodate Short-term courses
ranging from half a day to two weeks in dura-
tion. These include the many seminars, insti-
tutes, and specific subject lectures which can
be expected to occur during the year. These
courses are projected to increase by 1995 to
about three and one-half times the current level.
Currently there are an estimated 45 equivalent
training days allocated to these short-term
courses. Examples of some of these courses are
as follows: a 7-day narcotic school; a 7-day
course for the Hawaii State Guard; courses for
private security guards; a l-day breathanalyzer
course and other Specific subject courses for
departmental personnel.' Provision for other
training, such as for reserve Officers, is not
provided here since it is assumed this training
will continue to be provided in the evening hours.

 

54

Corrections:

 

1. Probation and Parole - A. An entry level
course for casework staff of the various pro—
bation and parole agencies in Hawaii. Also
included in this category are institutional
counselors of the various correctional facil-
ities. This course is projected at 300 hours
to begin before 1975. It is feasible that
part of this course can be integrated with
police recruit training. It is estimated that
up to 25% of this BOO-hour course would be
common to both police recruit training and pro-
bation and parole entry level training.

 

2. Probation and Parole - B. An annual refresher
course for casework andlinstitutional counsel-
ing staff of the various corrections agencies
and facilities. This course is projected at
40 hours per class by 1975.

 

3. Detentions - A. A l60-hour entry level course
f8: guards, houseparents and support personnel
having contact with inmates in the various cor-
.rectional facilities of Hawaii. The projected
length of this course reflects an assumed
expanded role for the detentions employee.

This course is projected to begin by 1975.

4. Detentions - B. An annual refresher course for
detentions employees consisting of 40 hours per
class.

 

5. Supervisory and Management Training. Probably
the most compatible area of integrated training
for all criminal justice agencies is at the
supervisory and management levels. For this
reason, it has been assumed that corrections
supervisory and management training will be
accommodated in the corresponding courses
included in the law enforcement curriculum out-
line. Percentage factors have been added to
those law enforcement course calculations to
accommodate the expected numbers of corrections
personnel at this level.

 

Public Prosecutors and Defenders:

l. Prosecutors-Defenders — A. This is seen as two
separate entry-Level courses, one for public
prosecutors and one for public defenders. The

55

feasibility Of conducting at least part of the
courses jointly for both prosecutors and de-
fenders should be investigated. The content
Of the courses could include basic criminal-
istics, trial procedures as locally applicable,
tactical aspects of cases, and evidence. The
courses are projected at 120 hours each.

2. Prosecutors-Defenders - B. A periodic refresher
course for public prosecutors and defenders.

This course is projected at 40 hours per class
by 1975.

Courts:
Four 40-hour segments have been allocated for
the judiciary. These are designed to include
institutes for judges and magistrates as well
as inservice training courses for support per-

sonnel of the courts including bailiffs, court
clerks, etc.

Using estimates and projections from the consultant's
reports it appears that the total number of personnel in the
criminal justice system of Hawaii approximates 3,000 with
police constituting the largest group.

The consultant's report recommends the following

staff for the prOposed Center:12
ADMINISTRATION
Office of the Director
Director
Secretary

Planning, Research & Evaluation
Research Analyst
Clerk

e hmara IqhaH

Total Administration

 

lZIbide ’ Pp. 41-42e

56

POLICE TRAINING

Police Training Coordinator
Asst. to Coordinator
Recruit Class Supervisor
Program Assistant
Trainers/Instructors
Secretary-Clerk

Cadet

CORRECTIONS TRAINING

Probation & Parole Training Coordinator
Detentions Training Coordinator

MEDIA CENTER

Media Specialist
Librarian

Audio-Visual Tecnician
Clerk

Graphic Artist

SPECIAL TRAINING
Range Officer
Sergeant/Trainer

Patrolman
Gunsmith

DORMITORIES

Supervisor

BUILDINGS & GROUNDS
Superintendent

Maintenance/Repairman
Janitor/Groundsman

TOTAL PERSONNEL

wHHHHH MPH gwwmwwww

MHHHH

mkthH

45

57

The Florida Institute
for Law Enforcement13

In 1965, the Tampa Bay Area Chiefs of Police Associ-
ation endorsed the creation of an institute at a public
junior college (St. Petersburg Junior College) to provide
area police executives with assistance in training, research
and deve10pment. From its inception, the Institute was
dedicated to a philosophy of service to the communities
served by the junior college in an effort to bridge the gap
between the academic community and public service agencies.
Admittedly, the courses, programs, etc., were training
oriented in the traditional sense during the early days of
the Institute, but continual efforts toward revision improved
the Institute's services in terms of quantity and quality
through the years.

Features Of the Institute which indicate movement
toward a full service regional facility are correspondence
courses to service officers who are unable to attend classes
on campus, a teaching crime laboratory, use of a teaching
courtroom facility at Stetson University College of Law,
varied instructional techniques, an executive development
program, and dissemination Of numerous training materials

I

and services.

 

13Florida Institute for Law Enforcement, Services of
the Florida Institute for Law Enforcement, an undated mimeo-
graphed description Of services (St. Petersburg, Florida:
St. Petersburg Junior College).

58

The Institute is noted here primarily to illustrate
one regional effort to create a continuing education cap-
ability in conjunction with a public educational institution
to meet the combined personnel deve10pment needs Of several

police organizations.

Bramshill: England's Police College}4

One of the world's foremost continuing education
facilities for personnel of a single criminal justice sub-
system is located at Bramshill in Hampshire, England. It
was created in 1948 and in 1953 moved to its current loca-
tion. Officers from Commonwealth Nations and England are
provided training, basic education, and continuing courses
and programs. Arrangements have been made with several
universities and colleges for advanced matriculation to
degree work. Bramshill Scholarships provide full pay and
allowances and assistance with university expenses.

The College provides four courses:

The Senior Command Course - 6 months
The Intermediate Command Course - 3 months
The Inspectors Course - 6 months

The Special Course - 1 year

Of Special Significance is the Special Course which

is comprised Of "general studies" (which includes history,

 

14Taken from correspondence, program descriptions,

and mimeographed materials by the Police College staff.

59

government, economics, social problems, literature and inter-
national affairs), "police studies" (which are essentially
the professional deve10pment courses), and a brief course
of study in civil defense.

The College's philOSOphy of education is apparent
in the breadth and depth Of its courses, full time staff,
and lecturers. Its instructional staff is drawn from all
units of the criminal justice system, university and college
staffs, government representatives, and various community
group representatives. Of special interest is a comparative
examination of the structure, philOSOphy, and staffing of
the United States Federal Bureau of Investigation's National

Academy with Bramshill.15

The Institute for Court Management

 

The Institute for Court Management, a part of the
University of Denver College of Law, has been created as a
joint project of the American Bar Association, the American
Judicature Society and the Institute of Judicial Administra-
tion. The goal of the ICM is to provide court systems and

individual courts with personnel who have the following

 

15For an excellent description and discussion of the
U.S. FBI National Academy see Kenneth Edward Joseph, A Study
of the Federal Bureau OfInvestigation's Contribupron to Law
Enforcement Trainingand Education in the United States.
(Unpublished Ph.D. dissertatibn, Michigan State University,
College of Education, East Lansing, Michigan, 1970).

60

qualities and qualifications:16

1. An understanding of the purpose of the courts and
their relationship to other governmental units:

a. The relation of the courts to the executive
and legislative branches of government.

b. The function of the courts in a democratic
system of government.

2. An understanding of the basic division of functions
between

a. the establishment of fundamental court policy,
which is the reSponsibility of judges, legis-
lative bodies, judicial conferences and
councils;

b. the function of judging, which is the exclusive
responsibility of the individual judge; and

c. business management, including such things as
budgeting, finance, recruitment, training and
supervision of supporting personnel, which are
functions of the court executive officer.

3. An understanding of the judicial process and the
role each of the participants plays:

a. The function of the judge, attorneys, the jury,
the court clerk, the commissioners, referees,
bailiffs, the jury commissioners, and probation
officers.

b. The phases Of all types of law suits--civi1,
criminal, domestic relations, juvenile, equity,
etc.

4. An understanding of the constraints on traditional
concepts of management imposed by unique character-
istics of the courts and the decision-making process
a. by the requirements Of the adversary process;

b. by the operation of the jury system;

 

16The Institute for Court Management, A Management
Fellowship Program (Denver: University Of Denver, College
of Law), pp.l3-4.

 

61

c. by the necessary independence of judges.

An understanding of how sound financial management
applies to the operation of the courts through

a. governmental accounting and budgeting;

b. the planning element in budgeting; and

c. the use Of audit procedures and capacities.

An understanding of the capabilities and costs of
modern automation devices and how they may be used

in the courts

a. in processing and analyzing statistical data in
court Operations and planning; and

b. in docketing and record keeping.

An understanding of the management and development
of personnel and the constraints imposed on person-
nel management by public personnel systems and
union activity. The executive officer Should be
able

a. to deve10p and administer personnel rules and
regulations;

b. to develop and evaluate training for employees;

c. to Operate sound personnel screening and selec-
tion processes;

d. to make effective use of grievances and discip-
line procedures; and

e. to make effective use of incentive devices in
the development of personnel.

An understanding of the management styles most
applicable to the courts, so that the executive
officer can

a. evaluate supervisory performances and improve
its exercise;

b. get maximum effort from specialists in the
court system; and

62

c. relieve the chief judge and committees of the
court Of all possible administrative burdens
in order to permit maximum use of judges' hours
for doing judicial work.

9. An understanding of scientific method and its rela-
tion to the problem of court management, including

a. an understanding of the use of experimental
techniques in evaluating the effect of changes
or proposed changes in method;

b. an awareness Of the limitations in subjective
evaluation of judicial procedures;

c. a recognition of the capabilities and limita-
tions of modern social science research tech-
niques as applied to the criminal justice
system; and

d. an understanding of the need for preparation of
relevant data for the purpose Of periodic and
timely reports in an attractive and effective
manner.

10. An appreciation of the need to communicate with the
public

a. in response to individual inquiries;
b. through the media; and

c. by contacts with educational institutions.

The course is a 26-week mid-career management course
designed to prepare court executives for the nation's courts.
ICM is foreseen as an institution with high change potential
for the judicial system and has been funded by The Ford Foun-
dation with a $750,000 grant. In conjunction with the
National College of State Trial Judges, Reno, Nevada, an
additional grant of $357,000 has been awarded for the study

of metrOpolitan courts throughout the country.17

 

l7Correspondence with ICM Executive Director Ernest
C. Friesen, Jr., dated September 18, 1970.

63

The National Academy of Public Administration has
provided a panel Of distinguished educators, executives and
scholars to assist in planning and evaluating the Institute.
The ICM is also interdisciplinary oriented in seeking
students from the professions of law, public administration,
court administration and business administration.

Closely related to deve10pment of ICM was the First
National Conference on the Judiciary held in Virginia,

March 11-14, 1971. Both President Nixon and U.S. Supreme
Court Chief Justice Burger clearly indicated that change is
evident in our nation's courts. Both indicated support for
a national center for state courts and for making education,
training, research and change the foundation of the prOposed
center.

President Nixon, in his speech in Virginia, stressed
the need for a coordinated balanced attack on improving the
criminal justice system and the results of failing by neglect,

default or intent to do so:

Many hardworking, dedicated judges, lawyers,
penologists and law enforcement Officials are
coming to this conclusion: A system of criminal
justice that can guarantee neither a speedy trial
nor a safe community cannot excuse its failure by
pointing to an elaborate system of safeguards for
the accused. Justice dictates not only that the
innocent man go free, but that the guilty be
punished for his crimes.

When the average citizen comes into court
as a party or a witness, and he sees that court
bogged down and unable to function effectively,
he wonders how this was permitted to happen.

64

Who is to blame? Members Of the bench and the bar
are not alone reSponsible for the congestion of
justice.
He went on to Specifically cite training and person-
nel deve10pment for new types of positions as well as for
the traditional types in mounting an effort to control crime.

He cited the need for para-professionals of all kinds--even

judges--and emphasized that change was the guiding theme.

State Training Standards for Police

19

Currently thirty-three states in the United States

have minimum standards laws which provide for minimum train-
ing and entrance standards for new police personnel.20
Twenty-Six of these states have provisions for mandatory
training standards and twenty of these states have provisions
for minimal educational requirements, usually a high school
education. Practices vary widely among the states depending
on many factors such as the form of the enabling state statute,

the quality of the professional staff administering the

statute, the composition and attitude of the policy-making

 

18Taken from a Speech by President Richard Nixon at

the First National Conference on the Judiciary, State of
Virginia, March 11-14, 1971.

19John J. Thomas, "The State of the Art, 1970,"
Police Chief, A Special edition devoted to police education
and training, (Washington, D.C.: International Association
of Chiefs of Police, August, 1970), pp. 63-67.

20Standards are usually set for education, physical
condition, mental condition, moral character, age, citizen-
ship and experience.

65

body provided by the statute, the financial resources avail-
able to administer the statute, and the support available
from training and higher educational institutions in the state.
The first state to enact statutes providing for
minimum standards for police was California in 1958, and
during the interim twelve years there has been a constant
increase in the number of participating states. Another
trend is noticeable in the gradual amending of the enabling
statutes to increase the training and educational require-
ments. This increase in standards has been linked to the
rapidly increasing number of law enforcement and criminal
justice community college and university degree programs.
Some states have begun to consider eliminating many of the
artificial distinctions between "education" and "training"
and this is foreseen as a significant indicator of an
emerging trend toward a new model for criminal justice
continuing education.21
An ever increasing impetus for the creation, deve10p-
ment, and improvement of police training standards is the
legal issue: "Is the municipality liable for insufficiently
trained police?" Numerous court decisions are occurring,
providing a response of "yes" to the legal question. On

the surface such a trend addresses itself only to the issue

 

21See Saunders, O . Cit., chapters four and five,
and Warren E. Headlough, Develo ment Of Police Trainin and
Egucation in Florida, LEAA Grant 350 (Tallahassee, Florida:
Florida Police Standards Council, 1969).

 

66

Of whether training and education is "necessary" for the
police Officer, but some court cases have taken a strong

interest in the quality and quantity of training curricula

depending, of course, on the issue before the court.22

Considerations of Major
Educational Models

Three major educational models are predominant in
United States educational and training institutions. They
are the liberal arts model, the vocational model and the
professional model. ,Seldom do these models exist as pure
models but instead are found in practice to have character-
istics of at least two of the models and frequently all

three. Some indication Of the opposition among the models

and their prOponents is provided by Professor Hook:23

When does a "vocation" become a "profession"?
Take the lowly street cleaner on whom the health
of our cities depends. Give him civil-service
status after rigorous training and examinations,
raise his income to that of college professors,
provide liberal pension and retirement allowances,
bestow upon him the official title of "Social
Physician," deck him out in a reSplendent dress
uniform, and before long his "vocation" will become
a "profession" too.

 

22For a general discussion of the legal issues posed
and a detailed state by state delineation of relatively
current case law, see James P. Murphy, Is the Municipality
Qiable for Insufficiently Trained Police?_?Orono, Maine:
Bureau of Police Administration, University of Maine, 1968).

23Sidney Hook, Education for Modern Man (2d ed.;
New York: Alfred A KnOp 7 1967), p. I99.

67

The professional education model looms in the fore-
front as a desirable model upon which to base the emerging
field Of criminal justice and its functional areas. The
American law school is perhaps the best example of the
professional education model and is already one of the
traditional, well accepted professions. McGrath24 identi-
fies the ideal educational components for the professional

man as the following:

1. The broad theoretical instruction basic to pro-
ficient practice.

2. The specialized knowledge and technical skills
which characterize a given profession and distin-
guish it from others.

3. The general education outside the vocational field
needed by all citizens, regardless of their chosen
work, to discharge their civic duties properly and
to live an informed and effective personal life.

4. Continuing education, both professional and
general, to keep the individual intellectually

alive and broadly informed after he discontinues
his formal higher education.

The major differences between the professional educa-
tion model and the vocational education model appears to be
social status and a varying degree Of liberal education.

Professor Hook25 highlights the issue:

 

24Earl J. McGrath, "The Ideal Education for the
Modern Professional Man," in Education for the Professions,
The 6lst Yearbook of the National Society for the Study of
Education edited by Nelson B. Henry (Chicago: The University
of Chicago Press, 1962), pp. 283-284.

2Snook, Op. Cit., pp. 207-208.

68

Should liberal arts courses be given in addi-
tion to the practical courses in vocational
education? Or should practical courses be taught
in such a way as to introduce historical and
social awareness, knowledge of scientific method,
and sensitiveness to persons and ethical principles,
into consideration of concrete problems? Neither
procedure can be laid down as a fixed principle to
be followed, although the second is educationally
preferable. It depends upon the type Of course
and the specific subject under study.

The greatest obstacle to this attempt to
integrate vocational and liberal education flows
from the suSpicions of the specialist against
introducing anything outside the narrow confines
of his specialty. He regards cultural studies
in professional schools as a kind of academic
boondoggling. It wastes time which in his eyes
is already insufficient for the technical
matters students should know. The Specialist
has a natural tendency to view the whole curri-
culum from the standpoint of his own professional
concern.

26

McGlothlin takes a less critical position with

respect to the distinction, but still recognizes the almost

polar position.

Even though "professional requirements" are
a "primary determinant" of the curriculum in pro-
fessional education, social understanding and
competence in leadership are secondary "deter-
minants," and cannot be ignored. Nevertheless,
the professional school cannot abdicate its
responsibility for providing competence to
practice, and remain a professional school.

It is here, of course, that the major con-
flict over the professional curriculum arises.
Its attackers imply that the professional school,
by focusing on competence to practice, will

 

26William J. McGlothlin, The Professional Schools (New
York: The Center for Applied Researcfiiin Education, Inc.,
1964), p. 31.

 

69

produce trained robots who can perform set tasks
with skill, but who will have little understand-
ing of the significance or relationships of their
efforts to human welfare.

McGlothlin urges that balance be sought in profes-
sional education institutions by deve10ping practitioners
"who are competent, who have social understanding, whose
personalities have been molded to their tasks, who have a
zest for continued study, and who can interpret and conduct
research."27 Imbalance among the above items in profes-
sionals' education presents the greatest threat to our
democratic education according to Hook.28

Vocational education conceived as job-

training represents the greatest threat to demo-
cratic education in our time. It is a threat to
democracy because it tends to make the job-trained
individual conscious only of his technological
responsibilities, but not of his social and moral
responsibilities. He becomes a Specialist in

"means" but indifferent to "ends" which are con-
sidered the province of another specialist.

The advent of the two-year junior and community col-
leges has made significant impacts upon vocational and
higher education. It suddenly created a forum for including
liberal arts studies in programs of vocational education
which have traditionally been limited to vocationally
oriented courses Offered in institutes, private schools,

trade schools, etc., and thus were unable to provide

 

27Ibid., p. 30.

28Hook, Op. Cit., p. 201.

70

liberal arts courses. Two-year colleges have also made it
possible for a Significantly larger number of Americans to
attend college than ever before. The sudden advent Of
Vocationally oriented programs of study for police, correc-
tional, and juvenile delinquency workers as part of the
community college movement has greatly contributed to the
trend Of these vocations toward professionalization.
Apprenticeships for corrections and police personnel
have been prevalent during the past several decades; but
they are gradually giving way to another phase. This is

typical, according to McGlothlin.29

Since professional education often began as
"apprenticeship," and even after organization
into schools was conducted largely by practi-
tioners in its early stages, the initial empha-
sis lay upon the transmission Of Skills found
useful in practice. But professional people
soonlearned that skills unsupported by knowledge
are a Shaky basis for a professional career.

Many larger corrections and policing agencies have
required varying lengths of vocational training in agency
Operated academies, and only recently have they begun to
move toward universities and two-year colleges for broader
leased education. The President's Commission on Law Enforce-
ment, described earlier, plus the large amounts of federal
aid made available through the Safe Streets Act of 1968,
.have combined to induce local agencies to seek better and

29McGloth1in, Op. Cit., pp. 45-46.

71

more professional education for their personnel. The
colleges and universities are beginning to respond to this
need as models are developing which make such endeavors
academically respectable and acceptable to college Officials.

The federal aid is also a major inducement for the colleges.

30

McGlothlin has identified some reluctance by leading

educators, however.

Yet some scholars of higher education, like
Abraham Flexner and Robert Hutchins, have con-
sidered most professional schools as inimical
to the university, diverting it from its main
tasks by moving it toward "vocationalism."

University and college Sponsored or housed professional
education has generally required the practitioner to broaden
his interests and training. At the same time the profession

has required the university to acknowledge the legitimacy of

its special requirements. According to Henry,31

The university is justified in asking that
the professional school emphasize the theoreti-
cal foundations of professional practice; that
a fundamental body of scholarly knowledge should
be the core of professional education and that
the acquisition of skills and techniques should
be a secondary, if necessary, concern.

The professional school may legitimately
expect the university to recognize that

 

30Ibid., p. 167.

31Nelson B. Henry, Education for the Professions,
the Glst Yearbook of the National Society for the Study Of
Education (Chicago: The University of Chicago Press, 1962),
p. 259.

72

knowledge, understanding, and theoretical foun-
dations are not enough for the professional
practitioner, for he must also be a master of
his craft. It insists that both basic and
applied research are worthy of the university.

The professional education model appears to be de-
vekmfing as the major emerging model for the criminal justice
functions. Corrections and law enforcement training is
evolving toward the professional model from an essentially
vocational training or academy model. The major role of
university and college academic programs in criminal jus-
tice has been to induce evolution of the academy type
program to the professional education model. This evolu-
tionary process has also tended to draw the pure academic

program towards the professional education model.

The Emerging Concept Of Andragogy

Professor Knowles identifies andragogy as an emerg-
ing concept which creates a technology for adult learning.32
Literally translated from Greek, andragogy means the art

and science of teaching adults or of helping adults learn.33
The potential impact of this concept is yet unrealized as
the field of education slowly gears up to meeting the chal-

lenge of mass adult education in a time when society is

 

32Malcolm S. Knowles, The Modern Practice Of Adult
Education: Andragggy versus Pedagogy, (New York: Association
Press, 1970), p. 3 .

33

 

Ibid., p. 38.

73

realizing that the time-span of major cultural evolutions
or change is such that it occurs three to four times during
the expected life span34 Of most adults. Adults can no
longer depend on their education as a child and young adult
to carry them through life.

Andragogy, the technology of adult learning, thus
becomes available to educational personnel to aid them in
the continuing education of adults in their various roles
as employee, parent, citizen, civic leader, etc. Such is
the case with the continuing education of criminal justice
personnel.

Knowles identifies four major assumptions of andra-
gogy about the characteristics of the adult learner as he
matures:

1. his self-concept moves from one of being a
dependent personality toward one of being

a self-directing human being;

2. he accumulates a growing reservoir of experi-

ence that becomes an increasing resource for

learning;

3. his readiness to learn becomes oriented
increasingly to the deve10pmental tasks

of his social roles; and

4. his time perspective changes from one of
postponed application of knowledge to

immediacy of application, and accordingly
his orientation toward learning shifts from

 

34Irving Lorge, et al., Psychology of Adults,
(Washington, D.C.: Adult Education Association of the U.S.A.,
1963). pp. 10-14. See particularly the Buhler-Frenkel life
Span concept.

 

74

one of subject-centeredness to one Of problem-

centeredness.35

Knowles' assumptions have curriculum implications
for this study and can easily be translated into imperatives
for any educational facility designed to serve adults as
learning centers. Andragogy replaces pedagogy, the art and
science of helping children to learn, which has substantially
contributed to many fallacious practices common to adult
education and continuing education today. Training programs
have not been an exception and fall into this classification,

suffering from using inappropriate pedagogical techniques.

Literature Synthesis

 

The review of literature has involved a fragmented
survey of descriptive material about facilities, institutions
and curricula related to criminal justice and its subsystems.
Two sections dealt with educational models and the emerging
concept of andragogy. This section is an effort to synthe-
size the major points develOped by the literature review
into a conceptual foundation for the study.

The public concern for increased standards among
criminal justice agencies for their personnel was indicated
in those occupations, particularly judges and prosecutors,

using law trained personnel. State bar requirements attest

 

351bid., p. 39.

75

to these standards of competency as does the history of the
deve10pment of law school curricula throughout the nation.
Continuing education in the law area has also been a
pioneer in criminal justice education and training. Recently
the efforts of the Institute for Court Management have fur-
ther pioneered the way for trained personnel in the court
sub-system of the criminal justice system. Its curriculum,
including staff and resource personnel, have been innovative
and problem centered, thereby relating well to the judicial
personnel supporting creation and deve10pment of the Insti-
tute.

State standards setting bodies for police personnel
have develOped nationwide during the past half-decade at
a rapid pace clearly indicating a trend to deve10p state
level selection and training standards. This trend has
probably contributed more than anything else to the public
conern for upgrading law enforcement personnel through
education and training. Three major efforts were described
and analyzed in this chapter, the Consolidated Federal Law
Enforcement Training Center, the Florida Institute for Law
Enforcement and England's Police College, focusing on police
training and continuing education.

Only one major study was located which dealt with
creating a criminal justice facility and curriculum. This
was the feasibility study to create a state criminal justice

center for the State of Hawaii. Unfortunately, it was

76

depicted more as a training center housing separate curri-
culum for the four separate sub-systems--police, courts, cor-
rection and prosecution--than as an integrated curriculum.

The three major educational models that have develOped
through the years in units of higher education were described
and analyzed to build a foundation for linking training and
education in the future. The three models--1iberal arts,
vocational and professional--were contrasted in terms of
charateristics perceived to be important to the field of
criminal justice and its sub-systems independently. The
professional education model appeared to be the most desir-
able model to fashion the curriculum of this study after
considering the status of the field in terms of training
and education achievements to date, the current state of
the body of knowledge constituting criminal justice, the
needs Of the practitioner agencies and the current status
of criminal justice related degree granting college and
university programs throughout the nation.

The emerging concept Of andragogy and its implica-
tions for criminal justice, education and training were
described and discussed in creating the foundation for this
study. Andragogy is perceived as adult-oriented techniques
for aiding learning by adults and allows pedagogical prin-
ciples of learning and techniques to be discarded. All
programming intended for the Centers and Institute will be

designed for adults, thus the Centers' and Institute's

77

activities are perceived as being applications Of the adult

education and continuing education fields.

CHAPTER III

METHODS AND PROCEDURE

Introduction

 

The Objective of this study was to design a model
continuing education curriculum to serve the four functions
of police, prosecution, courts and corrections which com-
prise the emerging field Of criminal justice. Interim
objectives were to (1) identify and define Significant
influence variables, (2) develop a taxonomy of tasks com-
prising the criminal justice system, and (3) deve10p the
rationale for the decisions made in constructing the
model curriculum. This section describes the population
for which the model curriculum was developed, the methods
employed in data collection, and the research design and

procedures used.

'Description‘of'POpulation

 

The Geographigal Regign

The study area is generally described as consisting
of seven counties around and including the City of Detroit,

Michigan, the nation's fifth largest city. The Region

78

79

consists of 240 political subdivisions distributed by type

as follows:

Cities 80
Villages 32
Townships 121
Counties 7

Total 240

The cities range in size and type to include Detroit
‘with its 1,512, 893 residents, various sized suburban cities,
small suburban and rural villages, sparsely populated rural
townships and open farm and park areas. Between 1960 and
1970 the cverall increase in population for the region was
13.2%. This single statistic, however, conceals highly

significant shifts within the region. The percent of popu-

lation change by county was as follows:36
Livingston +54.2
Macomb +54.l
Monroe +17.2
Oakland +31.5
St. Clair +12.1
Washtenaw +35.8
Wayne37 + .1
Region +13.2

The Region faces the typical metrOpolitan problems

(caused or contributed to by the density and mobility of

36Source: SouthEast Michigan Council of Governments,

3P0 ulation and Occupied Dwelling Units in Southeast Michigan,
I§70 (Detroit, Michigan: SEMCOG, 1970).
37The city of Detroit, located within Wayne County,
Ikaflects a 9.4 percent decline and the balance of the county
reflects an almost equal increase in population for the
Period 1960-1970 based on 1970 U.S. Census Bureau data.

80

population: complex, shifting and conflicting land use
patterns without design or scheme for desirable growth,
heavy industry, overloading of transportation systems,
water supply needs, and sewage disposal needs, to name but

a few. The Region is 4,593 Square miles in land size.

The PeOple of the Region

 

 

The 1970 U.S. Census of the Region's population sets
the figure at 4,734,508 with Detroit's population at
1,512,893. The Region's pOpulation represents all major
ethnic and racial groups and is truly a melting pot in the
sociological sense. Racial conflict is quite high. Several
major incidents of racial conflict have occurred in the past
five years with the 1967 Detroit holocaust the most violent.
Poverty-related problems in all the Region's large cities
are combined with racial problems, and surface in the form

of crime and social unrest.

The Region's Criminal Justice
Agencies and Their Personnel

The Region's criminal justice personnel are diSpersed
throughout the Region in prOportion, generally,to the pOpula-
tion. Table 2 presents this distribution by county and
major function. A more detailed description of the agencies
and their personnel will be presented later by function.

Defense counsel for persons accused of crime consti-

tute a very important part of the criminal justice system

81

as they become "Officers Of the court" when representing a
client. They may or may not be paid by the courts. In

terms of tasks performed, defense counsel's tasks approximate
those of prosecution. For purposes of this study, defense
counselors are not tabulated as part of the census of
criminal justice personnel, but their role should be firmly

recognized and future programming should involve them.

Table 2. Distribution of region's criminal justice personnel
by county and function.

4_

 

 

Police: Prose- Correc-
County Sheriff cution Courts tions Total
Livingston 74 3 12 10 99
Macomb 1,222 46 88 112 1,468
Monroe 266 7 47 48 368
Oakland 1,732 50 265 416 2,463
St. Clair 219 7 22 37 285
Washtenaw 495 17 81 94 687
Wayne 11,020 165 1,057 688 12,930
Region 15,028 295 1,572 1,405 18,300

 

a. The Crime Control Function and Personnel

The crime control function of the Region's criminal
justice system is the frequently overlapping and concurrent
reSponsibility of local units of government. Primary res-
ponsibility lies with the smallest unit of government--the

city, village or township; however, overlapping and

82

concurrent responsibility is vested in county and state
agencies. Local responsibility for controlling crime is
generally vested in a public officer or agency known as
"the police." The term "police" may be a several thousand
man or a twenty man police department, a village marshal,
or a volunteer police Officer. This "police department"
or "police officer," unless elected, is usually responsible
to a board or council of elected officials which provides
financial resources, establishes crime control policy, and
generally exercises executive control either directly to the
chief police official or through another public officer such
as a mayor, a manager, a commissioner, or a police board.
The following local government agencies, or Officers,
exercise general crime control reSponsibilities as well as
many non-crime control responsibilities which vary widely

between units of government even Of the same type:

constable police department

marshal department of public safety
police officer sheriff's department

deputy sheriff campus police

Although the above Officers or agencies are the major
agents of crime control for the government, it must be clearly
pointed out that certain crime control responsibilities are
exercised by private citizens, private security agencies,

and.other public agencies with narrow or limited crime control

83

duties. Private citizens have a duty to report crime, to
render assistance when directed to by police personnel, and
to be witnesses when called upon by the agencies concerned
with adjudication. Private security agencies include
building watchmen, private guard forces, private investiga-
tors, and private police. Public agencies with narrow or
limited crime control duties include fire marshals and drug
inspectors. Campus or university police are frequently
described in the latter category, but the trend is towards
considering and empowering them as public general crime
control agencies. Several agencies in Region One are
private guard forces with limited reSponsibility.

The crime control function includes investigatory
and case preparation responsibilities which have tradition-
ally been exercised by the police, public safety, or
sheriff's department. Increasingly, the county prosecutor
is assuming more responsibility in this area as investiga-
tors are frequently found in larger prosecutors' offices
and police executives are verbalizing the need for more
and better case coordination and preparation by the prose-
<cutor's office. With increasing frequency in the more
laeavily pOpulated areas of the region, pressure is being
Lolaced on the Office of the prosecutor for coordination of
<:ase investigation, especially when several political sub-
ciivisions are involved in a case.

The crime control function also includes a responsi-

IDility to increase the risks and difficulty of committing

84

a crime. This is more generally described as crime pre-
vention. Much of this responsibility rests with police,
public safety, and sheriff's agencies; but a very signifi-
cant segment Of this responsibility resides with private

and commercial firms who provide physical security (manpower
and hardware) to buildings, homes, and commercial establish-
ments, automobile "anti-crime" devices, and building code
requirements which increase risks and difficulty in com-
mitting crime. Juvenile delinquency prevention, riot
prevention, and organized crime control are also included,
and involve many agencies varying in nature from inter-
ested community and citizens groups to the police, state
agencies, the National Guard, and federal agencies including
the military. The major impact of such delineation is the
realization that crime control is a reSponsibility shared
by many agencies in varying degrees. This delineation of
responsibility should not minimize the role of such basic
social control institutions as the family, the neighbor-
hood and community social agencies. For purposes Of this
study, however, only the formal governmental agencies
charged with crime control duties are included in the crime

control component of the study population.

County Sheriffs.--By mandate of the Michigan Consti-
tution, each county must elect a sheriff for a four year

term of Office. The Office of sheriff has a history

85

beginning in England shortly before the year 1000 A.D. The
office, in Michigan, was reaffirmed in 1963 by the state's
new Constitution. Generally, the sheriff is the sole
remaining elected law enforcement Official in the United
States, and some counties, primarily large metrOpolitan
counties, have begun appointing the Sheriff rather than
electing him in general elections. A detailed description
of the office of Sheriff in Michigan is available in Th2

38

Michigan Sheriff written by D. Hale Brake for the

 

Michigan Sheriff's Association, 1960.

The sheriff is a peace officer and has the reSponsi-
bility and authority to maintain law and order throughout
the county and all political subdivisions therein. He is
also responsible for enforcing the laws applicable and in
effect in the state. Usually each Sheriff maintains a uni-
formed patrol service and an investigative unit varying in
Size from county to county depending on the County Board of
Supervisors' apprOpriation Of funds to maintain such
services.

A.major responsibility Of the sheriff is the main-
tenance and Operation of the county jail, which is essen-
tially a corrections responsibility. Usually emphasis is
placed on custody, but in recent years Significant rehabili-

tation efforts have been instituted in some counties.

38D. Hale Brake, The Michigan Sheriff (Lansing: The
Michigan Sheriff's Association, l960).

86

A state jail inspector representing the State Department of
Corrections insures conformance to minimal state standards.
City and village prisoners must also be housed in the county
jail if so requested, and if commitment is properly authorized.

The sheriff is responsible for executing civil and
criminal court orders Of a wide variety too numerous to list
and describe here. He is also an Officer of the circuit
court and provides personnel to prOperly exercise this duty
when the court is in session.

Some sheriffs are little more than keepers Of the
jail and process servers while others provide maximum
service in all areas of responsibility. Usually the role
Of the sheriff decreases as political subdivisions within
the county become incorporated and provide their own police
service.

Sheriffs have a very long list of miscellaneous
responsibilities charged to them other than those related
to criminal justice and for this reason should not be
considered wholly within the criminal justice system. A
very strong statewide association of sheriffs exists in
Michigan and should not be overlooked as a cohesive force
among sheriffs.

Each of the seven counties in Region One has a
sheriff's department located at the county seat with some
having sub-stations in distant parts of the county to pro-

vide better services to the citizens. As elected Officials,

87

sheriffs are responsible to the voters of their respective
counties; however, a certain amount Of control is exercised
over the sheriffs by the county boards of supervisors. By
controlling fiscal apprOpriations to the sheriffs, the
boards are able to indirectly, if not directly, provide a
form of executive control. Direct responsibility to the
voters and fiscal control by the boards Of supervisors re-
quires the Sheriffs to maintain a level of political respon-

siveness not Observed in other law enforcement agencies.

City Police.--The eighty-two cities in Region One
provide police services to their residents. They vary in
size from one or two police personnel to the approximately
5,000-man Detroit Police Department. Several types of
agencies exist to provide police service and all of them
are responsible either directly or indirectly to a city
council or board elected by voters. The city charter gen—
erally delineates executive control for the police agency.
A police chief or public safety director may answer directly
to the mayor or council president, a city manager, a police
commission or board, a police commissioner, or the city
council as a whole.

Nine departments Of public safety, excluding uni-
versities, exist in Region One. Usually these departments
have a broader scope of duties than do police departments.

Frequently, fire protection services are also included.

88

City police agencies are generally organized using
a semi-militaristic model of organization and rank structure
among personnel. City police departments of 1 to 20 sworn
Officers do not usually Specialize or provide for any
organizational division of work. All personnel are usually
assigned to a single division and each is expected to
respond to any call for police service. Some differenti-
ation among assignments may be used when length of service
or experience is perceived as a relevant factor in assigning
work to personnel. Bureaus, divisions, and specialization
of work duties begin to appear as police departments approach
or exceed the 20 man mark. Only in the largest city--Detroit--
does size of jurisdiction become a factor in the geographical

organization and in this case precincts are used.

Township Police.—-Township police services take many

 

forms among the Region's 121 townships. The rural townships
may have from one to four elected or appointed constables,

a part-time or volunteer township police officer, a "special"
deputy sheriff in residence working on an "on-call" basis,

a "regular" deputy Sheriff paid by the township, or any com-
bination Of these Officers. Urban fringe, suburban, or

the more heavily populated townships usually provide one or
more of the above forms of policing or, in the alternative,
contract with a city, village or the county sheriff to

provide a certain level and type of police service. Charter

89

townships usually have a full-time township police depart-
ment. In some instances they may rely on deputy sheriff's
commissions for full policing authority or contract with
another policital subdivision for a certain level and type
of police service.

Responsibility for policing rests with the town-
ship board which determines the form and qunatity Of police
service which it will provide or which it will Obtain from
other political subdivisions. Townships providing no‘*
police service from other political subdivisions are pro-
vided varying levels of services by the county sheriff and
the Michigan State Police without direct costs to the town-

ship residents.

Village Police.--Policing of the Region's thirty-

 

one villages is almost as varied as the policing pattern Of
townships in terms of organizational models. Generally,
however, villages have broader and more comprehensive
policing authority than do townships. Village councils or
boards may provide for and establish police forces and
appoint police officers as they deem necessary to preserve
law and order in their villages. The village president,
depending on the village charter and/or ordinances, is
usually responsible for the police force, but in most vil-
lages the council itself maintains close supervision of

police policy and direction.

90

Some villages rely on the sheriff for policing
.assistance. They frequently have someone in the village
appointed as a deputy sheriff to provide on-call service.
EBome villages provide police services by contracting with
(other political subdivisions.

Several villages rely upon volunteer police services
vvhich may vary from loosely to highly organized. The
lloosely structured volunteer forces Operate quite informally
awhile the highly structured volunteer forces call for defin-
.ite work schedules, training Of the volunteers, and usually
«good equipment. An excellent example of this latter type

is the Franklin Village Police Department.

State Agencies.--Many state agencies provide vary-
ing levels of crime control services to the Region, and
must be considered a part of the local crime control effort.
They are not, however, included as part of the study pOpula-
tion. District Two of the Michigan State Police is wholly
within the Region. It includes "Posts" at nine locations
as enumerated in Table 3.

Parts of Oakland and Washtenaw Counties are serviced
by "Posts" in neighboring "Districts." The Michigan State
Police provide full enforcement services for complaints in-
volving violations, and may perform duties as "peace Offi-
cers" in all political subdivisions in the Region.

The Michigan State Police are also very active in

Region One in providing the following specialist services:

91

fire marshal, traffic safety, criminal intelligence, crime
laboratory, vehicle inspection, fingerprint identification,
civil disobedience intelligence, subversive activity, and

major case investigations.

Table 3. Distribution of Michigan State Police officers
by Posts in Region One in 1968.

 

 

 

Post 1968 Personnel Strength
Detroit District Office 40
Detroit Post 28
Romeo Post 21
St. Clair Post 24
Warren Post 24
Flat Rock Post 35
Ypsilanti Post 38
Pontiac Post 38
Erie Post _30
Total 278

 

Source: Based on data supplied by the Michigan
State Police Office of Planning and
Research.

The Michigan State Police Department is a semi-
militaristic style organization responsible to the Governor
for the maintenance Of law and order within the state. It
is a "Department" within the state's organizational scheme
and receives its annual operating revenue by apprOpriations

from the Legislature, as do other state departments. State

92

Headquarters are located in East Lansing with a district
headquarters in Detroit. A captain serves as District Two
(Detroit) Commander and sergeants serve as Post Commanders
throughout the District.

The Organized Crime Commission Of the Department Of
Attorney General is headquartered in Lansing, but maintains
offices in the Detroit area. An ex-Detroit police commander
is currently chief investigator for the Commission. The
Commission's work is directed toward mounting and coordinat-
ing a statewide effort against organized crime under the
Attorney General.

The Michigan Liquor Control Commission, headquartered
in Lansing, has district offices in the Detroit area and
provides direct assistance to local crime control agencies
and personnel. The Commission is located in the Department
of Commerce, and is responsible thereto. Although the
activities Of the Commission in the area of law enforcement
are quite important to crime control, it serves another
major role. This Commission rebates 85 percent of the pro-
ceeds of the liquor retailers' license fees to the political
subdivision where the licensed establishment is located.

The rebate is to be spent by the law enforcement agency for
enforcing the liquor control act within the jurisdiction.

The Investigations Division of the Department of
Licensing and Regulation maintains offices in Lansing and

the Detroit area to investigate complaints, Violations, etc.,

93

involving professional practitioners licensed in the State
of Michigan.' A significant number of these investigations
involve the abuse Of narcotics and dangerous drugs; thus
this unit works very closely with local and other state

officials to assist local crime control efforts.

Crime Control Personnel.--The personnel of police

 

and sheriffs' agencies in the Region are grouped as shown
in Table 4 and the number of personnel by county and group
or level as defined in Table 4 is given in Table 5. Some
personnel positions are difficult to classify because of
the lack of standardization and duties that fit under two
or more criminal justice functions. A sheriff, for example,
is both a law enforcement officer and a correctional offi-

cer, as are his employees.

b. The Prosecution Function and Personnel

 

State criminal statute violations are prosecuted by
the county prosecutor in each county. Prosecutors are
elected on partisan ballots for four-year terms. As pro-
secutors, they are the chief law enforcement officers Of
their respective counties. They also act as general attor-
neys for other county officials.

Each city, village, and township may retain an attor-
ney to prosecute local ordinance violations and to act as

attorney on civil matters. These positions are appropriate

94

Table 4. The categorization of police and sheriff's
personnel ranks and titles into groups by
major type of work required.

 

 

Type of Work

Ranks or Titles

 

Administration

Command

Supervisory

Specialist

Entry

Auxiliary/Reserve

Miscellaneous

Chief, Sheriff, Commissioner,
Deputy Chief, Undersheriff,
Director, Superintendent

Inspector, Captain, Lieutenant,
Detective Captain

Sergeant, Corporal, Detective
Sergeant

Detective, Youth Officers, Traffic
Officers, Criminalist

Patrolman, Deputy, Policewoman,
Public Safety Officer

Patrolman, Reserve Officer, Special
Deputy

Civilians, Clerks, Dispatcher,
Matron, Cadet, Drivers Licence
Examiner, Teletype Operator,
Laboratory Technician

 

95

 

 

 

 

 

 

 

 

 

 

 

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omo.HH H¢~.H mvm.~ hma.m Hmm mmm mow an mcmmz
mme mm eoa mam b em mm 0H smooucmmz
mam ma mm em oa ca m m Macao .um
mms.a «mm mme mm» an «we as me pqmexmo
mom mm HHH mm I: ma NH 5 mouse:
-~.H hm ham «me am mm he mm means:
as u- mm mm m a nu m poummcfl>eq
Hopos msoocma m>uommm wHucm unflamflomom mmHOmfl> ocmEEOU cowumnum hucsou
-Hmomez \sumeflexsm uumdsm -ngnfipm
macho xcmm

 

 

.mmmH ca moo coflmom cw

moon ooh mom mucooo we HoosonHmm .mmmwumcm one moflaom mo coausnanumfln .m OHAMB

96

and may be permanent, full time, part-time, on a retainer
basis, or any combination of these methods.

In Region One, each of the counties has a county
prosecutor and at least one assistant prosecutor. Table 6
depicts the distribution Of prosecutors and staff by major
personnel groupings. The "adminstrative" group includes
the elected prosecutor and deputy or chief assistant prose-
cutor. The "supervisory" group includes all personnel who
are primarily supervisors. The "specialist‘group includes
assistant prosecutors, investigators, tax examiners,
organized crime prosecutors and investigators, etc. Four
law student interns are listed as miscellaneous for Oakland

County.

c. The Courts Function and Personnel

 

Region One courts function as part of the Michigan
Judicial System as provided by the 1963 Michigan Constitu-
tion. There is little significant regional identity of the
courts as they function within the criminal justice system.
The primary political subdivision identity is by county.
The Supreme Court is located in Lansing, the state capital,
and is the administrative "head" of the system. Wayne
County, which includes Detroit, constitutes District I of
the Court of Appeals and the remaining six counties in

Region One are included in Court of Appeals District II.

97

 

 

vmm «ma ha p cm s we m Hence
Mm: .me w... m Mm .m m .H. H8330
e o o o v o o o msomcoaamomfiz
owe hoe 0H m an m mm o unnameomdm
a m o o m o H o suome>ummam
«H m m N N m m N O>Humnumwceeo¢
codmmm mcmmz swoon Macao .um oceaxmo OOHcOz chomz comm RHOB «0 meme
ncmmz umce>eq

 

 

.mpme .pmuessmu

Rhos mo some momma one mucooo an HoccOmHom coausoomoum m.oco cOamom

.m manna

98

Each county in the Region has a Circuit Court with one or

more judges as follows:

Livingston 1
Macomb 7
Monroe 2
Oakland 9
St. Clair 2
Washtenaw 3
Wayne '21

Total in Region 51

Each county in the Region has a Probate Court with

one or more judges as follows:

Livingston l

N

Macomb
Monroe
Oakland
St. Clair

Washtenaw

Ios so 1‘ u: #4

Wayne

Total in Region 16

The City Of Detroit has 16 judges in its Recorders
Court which has original and exlusive jurisdiction for all
state traffic violations and City of Detroit ordinance
violations. The Common Pleas Court in Detroit has nine

judges. This court handles civil cases involving sums up

99

to $1,000, and has jurisdiction of criminal arraignments
and examinations that are not regularly handled by other
courts in the county or city. Forty-seven District Court
judges are dispersed throughout Region One. Twenty-nine

cities have municipal courts with a total of 47 judges.

Circuit Court Functions.--Circuit Courts are courts

 

of general jurisdiction which have reSponsibility for all
actions except those given other courts. They have original
jurisdiction in all criminal felony cases as well as an
extensive list Of civil law responsibilities. Judges are

elected at general elections for six-year terms of office.

Probate Court Functions.--Each county has one tO‘
six probate judges who handle matters pertaining to wills
and estates, adoption, guardianship, mental hospital commit-
ments and delinquent, neglected or abandoned children and
youth. Usually a juvenile home, a probation department, and
a juvenile Officer's unit are parts of the probate court.
Judges are elected in general elections for six-year terms

on a non-partisan ballot.

Recorders Court.--This court has jurisdiction over

 

all criminal and condemnation cases arising within Detroit.
It provides seven-days-a-week service, Operates a bail bond
bureau, conducts arraignments, issues warrants and processes

various writs. It also Operates one of the nation's largest

100

and Oldest adult probation units, a youth probation division,

a domestic relations division, and a psychiatric clinic.

Common Pleas Court.--The Common Pleas Court exists

 

in only one of the counties, Wayne. It has jurisdiction of
criminal arraignments and examinations in all cases outside
Detroit but within Wayne county which are not handled by
other District or Municipal Courts. The Court also has

extensive civil law reSponsibilities.

District Courts.--District Courts have exclusive

 

jurisdiction of all cases of civil litigation involving sums
up to $3,000; jurisdiction Of all criminal cases involving
misdemeanors; the arraignment, setting, and acceptance of
bail; and the conducting of preliminary examinations in
felony cases. Judges for this Court are elected on a non-
partisan ballot for six-year terms. Magistrates may be
appointed by the District Court judge to exercise certain

judicial functions.

Municipal Courts.--These courts function essentially

 

as District Courts within a certain city. Their juriSdiction
in civil cases is limited to those involving amounts not in

excess Of $1,500.

Cgurt Personnel.--The personnel of the Region's
courts may usefully be categorized in five work groups as

presented in Table 7.

101

Table 7. A categorization of Region One court personnel
into groups by major type of work required.

 

 

 

Type of Work Title

Judicial Judge, Referee, Magistrate, Court
Administrator

Supervisory Supervisor

Specialist Psychiatrist, Counselor, Legal Secre-

tary, Court Recorder, Tax Examiner,
Investigator, Attorney

Clerical Secretary, Typist, File Clerk, Recep-
tionist, Docket Clerk, Warrant
Clerk

Miscellaneous Telephone Operator, Key Punch Opera-
tor

 

The number Of personnel by county and group is given
in Table 8. Some positions are difficult to classify into
groups because of the lack of standardization and duties

that fit under two or more criminal justice functions.

d. The Corrections Function and Personnel

The corrections function of the criminal justice
system has come under attack during recent years to such a
degree that major organizational changes appear likely in
the near future. Corrections has not been treated as a
separate and distinct function as have the police or courts.
Instead, correctional responsibilities can be found under

the police and sheriff's agencies (the county and city jails)

102

 

 

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m m o o o o o o msomcmaaoomwz
How mom me h me am mm m Hmownmao
Hop mam mm s th NH em a anHpHommm
~m mm H o e H o o muomH>uwosm
mmm moa NH m hm ma on m m>flumupmwcweo¢
cowmom mcwmz swamp HHMHU .um. ocmaxmo OOHcOz macaw: comm xuoz mo mama
Icmo3 Imce>flq

 

 

.mwma .mucooo tom xHOS no name Hence we HoccOmHmm uHooo woo GOemmm .m manna

103

and the courts (probation and other limited treatment ser-
vices). Michigan is moving toward a state-controlled cor-
rectional system. Numerous correctional services are per-
formed within Region One and they are controlled by local
units Of Government in gradually reducing amounts.

Each county maintains a county jail under its sheriff.
Cities and villages have the authority to maintain jails and
detention facilities, but failure to conform to state stan-
dards has resulted in many of them being closed. The largest
city correctional facility is the Detroit House of Corrections.

Numerous youth facilities are available throughout,
the Region and include detention, treatment, home, and after-
care type institutions--all generally considered a part Of
corrections. Extensive court services for the youth in
these facilities intertwine the corrections functions quite
closely with the courts.

Table 9 presents the number of correctional person-
nel employed by local units of government in Region One.
The data are somewhat misleading, especially for county and
city jails, as the personnel of these institutions frequently
perform primarily police or non-correctional functions with
only incidental corrections duties. Effort was made here to
avoid double counting of criminal justice personnel with
dual responsibilities for policing and corrections in
sheriff's departments. Correctional personnel were grouped

by type of work as given in Table 10.

104

 

 

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mme mH mNH em o mmm em m o msomcmHHmomHz
mm mH 0H 0 H m o m H HMOHHOHU
New HHH o m mm mm p mm m apoumso
Hmm 5H mam em m moH mH Hm p HmHHmHommm
Hv MH OH m H m m n o mHOmH>Hoosm
mm m mH m H H H H H O>HumnuchHEo¢
SOHmmm OU ochm3 swamp HHoHU .um oSMH moncoz oEoomz cove xnoz mo mama
omen Icmmz Ixmo ImcH>HH .

 

 

.mpmH .pmanemu
MHO3 mo Oahu Momma tom hucsoo he HmccOmHmm HMGOHDOOHHOO moo GOHmOm .m mHoma

105

Table 10. The categorization of correctional personnel
positions or titles into groups by type of
work required.

 

 

Type of Work Personnel Positions or Titles

 

Administrative Sheriff, Jail Administrator, Chief
Probation Officer, Senior Parole
Officer, Superintendent, Deputy
Superintendent

Supervisory Desk Sergeants, Custody Sergeants
and Lieutenants

Specialist Parole Officer, Psychologist, Coun-
selor, Teacher, Caseworker, Sten-
ographer, Accountant, Bookkeeper,
Personnel Officer, Nurse,

Physician
Custody Jailer, Deputy, Women Attendants
Clerical Records Officer, Secretary, Clerk,
Typ1st
Miscellaneous Kitchen Personnel, Volunteers, Main-

tenance, Equipment Operators,
Telephone Operators

 

Method and Procedures

The concept of curriculum engineering connotes a
systemic approach to curriculum deve10pment. According to
Beauchamp,4 curriculum development involves three functions:
(1) to produce a curriculum; (2) to implement the curriculum;
and (3) to appraise the effectiveness of the curriculum and

the curriculum system. This study undertook the first

 

. . 4GeOrge A. Beauchamp, Curriculum Theory. Second
Ed1t1on (Willmette, Illinois: T e Kagg Press, 1968), pp, 103-
109.

106

function of curriculum development by prOposing a curriculum
and supporting rationale.

Throughout Beauchamp's work he makes reference to
curriculum prOposing, implementation, evaluation and revi-
sion as each being essential for any successful curriculum
system. Thus, the prOposing of a curriculum should be
viewed as simply the first step in the system. Equally
important is the process used to develop the curriculum,
for it is essential to the success of the subsequent curri-
culum engineering phases that all interest groups involved
in the later phases be involved or at least have input into
the first phase. Without a high degree of integration
among the functions, the system will not be Operable, or
at best, will be short-lived.

The method used for this action research study con-
sisted of a census Of criminal justice personnel in the
Region and an exploratory and descriptive survey into the
continuing educational needs Of the personnel comprising
the criminal justice agencies Of the seven-county Detroit
(Michigan) Region. The results Of this census and survey
were then used to design a system-change oriented curriculum
for four personnel deve10pment Centers and an Institute.

In some respects, the research design used is simply the
first and hypothesis-building step of a long-range experi-
ment to induce organizational, personnel and system change

in what could now be described as a federation of local

107

criminal justice agencies in a major metrOpolitan region.

Procedurally, the first phase Of the study was to
identify Objectives. These Objectives were stated earlier
along with some of the constraints and criteria which
Operated to guide the study. It was clearly recognized
that the resulting curriculum.must be firmly grounded in
a philOSOphical foundation or rationale.

Phase two was identified as the position-task
analysis phase. This was facilitated by employment of a
field instrument designed to elicit complete position and
task descriptions of selected agencies' personnel positions
throughout the Region.

Phase three was the identification of curriculum
modules using the data developed from phase two and the
constraints and criteria identified in phase one which,
along with the mechanism for providing the programs, courses,
seminars, etc., constitute the proposed model curriculum.

A preliminary phase, not considered a part of the
study design, although it was considered an integral first
step for the study, consisted of a census of all criminal
justice personnel in the seven-county Region employed by
a unit Of local government located within the Region. As
a part of the census, all personnel were identified by
their parent agency, the local unit of government to which

attached, and a general job classification and description.

108

The data collection process consisted of four steps:
(1) taking the census; (2) determining the universe and
selecting the sample; (3) deve10ping the field instrument
to be used for collecting task descriptions; and (4) com-

piling and analyzing the position and task descriptions.

The Census

 

The census required a telephone or in—person contact
with a staff or administration representative of each crim—
inal justice agency located in the Region as previously
defined. A delineation Of all personnel in the agency by
title and description was Obtained from the agency repre-
sentative. Usually this information was readily available
in printed form from the agency and, if not, it was verbally
described to the researcher and recorded by him.

The results of the‘census were presented in the
earlier sections of this chapter where the population was

described. The census was the basis for selecting the sample.

The Sample

 

The sample for this study was selected using a com-
bination of stratified and judgmental sampling techniques.
Stratification was achieved on the basis of agency size and
pOpulation of the communities served. Geographical and
random sampling were deemed not to be relevant techniques

for this study.

109

The universe of criminal justice was divided into
the four traditional sub-systems of police (and sheriffs),
judicial, prosecution and corrections. Juvenile services
were considered as being reflected in each of the four sub-
systems and to separate them as a sub-system would not be
reflective of current organizational structure.

The police sample was drawn to meet the following
specifications:

1. A police agency with part-time Officers only
2. A small police agency with 2-5 full-time Officers

3. A medium-sized police agency with 25-100 full-time
officers

4. A large police agency with over 500 full-time
Officers

5. A sheriff's department of 10-50 full-time Officers.

The prosecution sample consisted of two Of the seven
county prosecutors' Offices in the Region and one city
attorney's Office which acts as a prosecutor of city ordi-
nance violations carrying criminal or quasi-criminal sanc-
tions. As the duties of prosecutors are defined by statute,
one small and one large county prosecutor's office were used.

Judicial duties and tasks are prescribed by state
statute and do not significantly vary in terms of the tasks
performed. Obviously, case loads, frequency of occurrence
of cases, administrative structures, size of support staff,
etc., vary based on size of court, but the tasks performed

are deemed consistent for this study. The courts comprising

110

the sample were a circuit court, a probate court, a dis-
trict court, a municipal court of a medium Sized city,
Common Pleas Court and Recorders Court. The latter two
courts are unique to Detroit; hence, a medium-sized muni-
cipal court was selected to represent the suburban cities
outside of Detroit.

The correctional agencies comprising the sample
were a large correctional institution, the county jail of
the sheriff's Office selected under the police sample, a
large city's jail, a juvenile detention facility, an
adult probation agency, an adult parole agency, a juvenile
aftercare facility, and a city probation department.

Recognizing that some of the agencies are actually
counted twice, the total number of agencies in the sample
were twenty-two. The double-counting occurred in that the
sheriff's agency used as a police agency was also used as
a correctional agency. The large city jail agency was
actually a part of the agency listed as the large police
agency. The two juvenile agencies were also administra-
tively under the probate court and all were listed in the
sample as separate agencies.

Administrators of all agencies selected for the
sample were assured of anonymity for their agreement to
cooperate in the data collection. Agency identification
was not deemed essential to achieve research objectives

nor were the characteristics of individual respondents,

111

which would have provided easy identification.

All agencies selected for the study participated
in it and extended full OOOperation. All regular full-
time and regular part-time and volunteer personnel were
utilized. This excluded project personnel on a temporary
basis, seasonal employees and special employees (informers
and informants) of police, sheriff's and prosecution

agencies.

The Instruments

The instruments used to collect task listings and
descriptions are reproduced here as Figures 5, 6 and 7.
Figure 5 is a Task Listing Sheet used to list all tasks
performed as a regular duty Of each position in each agency
selected for the sample. A formal position description
was obtained wherever available and most agencies were
able to provide a complete set Of formal position descrip-
tions. The tasks were listed as identified without any
concern for sequence. A minor problem.was encountered in
deciding what was a task as opposed to a sub-task. This
problem became minimal as the experience of the investigator
broadened.

The "Frequency of Performance," "Importance," and
"Learning Difficulty" columns were of no practical utility
due primarily to the lack Of standardization of terms and

practices in the field. To collect more than simply a task

AGENCY

POSITION TITLE
POSITION DESCRIPTION:
SOURCE

BF—

112

TASK LISTING SHEET

 

 

~7—

NUMBER IN AGENCY

 

 

[ ] Attached, [ ] On back of form

BY

 

 

 

TASK

FREQUENCY OII IMPORTANCE
PERFORMANCE

LEARNING
DIFFICULTY

 

 

 

 

 

 

 

 

 

\o oa-q O\(fl e.ce Raid

 

[—l
o

 

[—l
H

 

H
N

 

w

 

l—I
h

 

U'l

 

m

 

l—l
\I

 

m

 

[—1
\O

 

N
O

 

 

 

IU
H

 

 

 

 

Figure 5.

Task listing sheet.

 

113

TASK DESCRIPTION SHEET

 

AGENCY POSITION TITLE

 

 

TASK

 

*I' STEPS IN PERFORMING THE TASK TYPE OF LEARNING
PERFORMANCE DIFFICULTY

y.

 

 

 

 

 

 

 

 

 

mmqmmthH

 

P
O

 

H
g.-

 

[.1
N

 

[.0
w

 

[J
h

 

l-‘
Ul

 

 

 

 

 

 

g.»
m

 

COMMENTS:

Figure 6. Task description sheet.

114

CODE SHEET

 

FREQUENCY OF PERFORMANCE

 

l = More than once daily

2 = Less than once daily, but more
Often than once weekly

3 = Less than once weekly, but more
Often than once monthly

4 = Less than once monthly

5 = Variable

IMPORTANCE

l = Essential/Mandatory

2 = Important

3 = Helpful

 

LEARNING DIFFICULTY

1 = Easy

2 = Moderate

3 = Difficult

4 = Very Difficult

 

TYPE OF PERFORMANCE

l = Recall

2 = Manipulation

3 = Discrimination
4 = Problem Solving
5 = Communication

V = Verbal
W = Written

Figure 7. Code sheet.

115

list and description would have made the data collection
too long and would have produced unreliable data without

a more highly structural code and definitions. Field test-
ing of the terms, definitions, etc., may have helped.

Figure 6 is a Task Description Sheet by which the
important or major steps of each task were identified and
listed. The "Type of Performance" column was intended to
permit identification Of what was required of the employee
to provide the several task steps. The terms provided on
the code sheet were considered Objective, but the complex-
ity and variety of tasks found to be performed in the
numerous criminal justice positions made this segment of
the research design too time-consuming and a hindrance to
Obtaining detailed and complete task lists and descriptions.
This item was dropped during the data collection phase as
it did not significantly contribute to the data need to
create a base for the curriculum design. The deletion was
deemed to be Of no consequence to the study.

Figure 7 is a code Sheet designed to permit some
degree of standardization in listing and describing tasks
for Figures 5 and 6, but the additional detail provided for
by the code was Of no value for this study. Such detail
will be essential for continuation studies refining the
prOposed curriculum. Figures 5, 6 and 7 were adapted from

the works of Mager and Beach,5 and the Interagency Steering

 

5Robert F. Mager and Kenneth M. Beach, Jr., Deve10p-
ing VOcational Instruction (Palo Alto, California: Fearon

 

116

Committee which designed the curriculum for the Consolidated
Federal Law Enforcement Training Center6 described earlier.
The Interagency Steering Committee had also indicated diffi-
culty in collecting the data sought by their study, and they,
too, had dropped the effort to standardize data because of
the lack of standardization in the field. Some of the
Steering Committee's original field instruments were Obtained
from that Committee and examined. They revealed meaningless

responses to this item.

Compilation

 

Data compilation for the census consisted of a list-
ing of each unit Of government's criminal justice agencies,
using the agency name as given and the position titles as
given by the responding Official. After the data were
collected, common titles and generic group names were derived
and defined. All positions were then allocated among the
classification of positions into job groups. The various
groups and their definitions are reported earlier in this
chapter.

Some difficulty was experienced with personnel in
some agencies who performed tasks in two or even three

different work categories. An example of this is a small

 

6U.S. Civil Service Commission, Bureau of Training,
Applicatign of a Systgms Approach to Training: A Case Stud ,
Training Systems afid Technology Series: NO. ll. (WaShington,
D.C.: Government Printing Office, 1969).

 

117

community police chief who was an administrator, a super-
visor and even performed patrolman tasks as a daily or
regular part of his job. The same problem was experienced
with the judge Of a small circuit court. He performed the
tasks that would have been spread among several persons in
a large circuit court, or more particularly, Recorders
Court, which was included in the sample.

The data used to identify and define continuing
education needs Of criminal justice personnel in order to
(l) insure better job performance, (2) enrich the lives
of the personnel as individuals, and (3) improve the system
in terms Of goal achievement, have consisted of descriptive
task statements. These task statements were Obtained from
several sources. No effort was made to quantify them as
to frequency of performance, relative importance, potential
importance if not performed or improperly performed, or as
to variations in agency size. Such quantification would
have allowed greater precision in curriculum construction,
but it would have exceeded the practical limits Of time
and other resources for this study as discussed in an
earlier section of this chapter.

The task statements are expressed in the form of
action verbs and direct Objects, each designating something
done by agency personnel as an Officially sanctioned task
or, in the composite, a job description or personnel clas-

sification. Use of the term "classification" suggests a

118

classification scheme or taxonomy, but no such ordering
device has previously been developed and none was developed
in this project. Political subdivision fragmentation, lack
Of coordination between criminal justice agencies and job
description schemes not oriented toward education-have each
contributed to the lack of any scheme or taxonomy which
would most effectively facilitate curriculum construction.
It was therefore necessary to devise a system for gathering
and ordering data on work-related needs for education.

Task statements were Obtained from the following sources:
Interviews and Observations

Work Records

Ordinances and Statutes

Policy and Procedural Manuals

Job Descriptions

Existing Training Curricula
Problem Identification

\IO‘U‘IbUNH
eeeeeee

Quality considerations became important to derive
meaningful task statements that reflected the criteria
calling for enriching the lives of the personnel as indi-
viduals and improving the system. To "enrich" and "improve"
imply quality consideration; thus, many task descriptions
include relative terms which place emphasis upOn the
quality of performance Of a task rather than mere perfor-
mance. Such statements should not be taken to mean that
quality is not implied in other task statements. It is
assumed that the total curriculum is concerned with quality,
but that some tasks, such as those related to race relations,

are Of particular significance at the present time in

119

history because of the quality of performance or manner
in which they are being performed.

The task statements were then grouped or clustered
on the basis of similarity of tasks and the-job level to
which the tasks were usually assigned. A grouping of
clusters was then develOped recognizing rank structuring,
job descriptions, and agency customs. The tasks were

arranged into the following groups:

1. Management

2. Supervisory

3. Line

4. Staff

5. Para-professional

Although the groups are broad, they allow curriculum
programming to begin with common concerns based upon simi-
larities in organizational level and character Of work
performed, rather than to initiate a curriculum organized
according to traditional sub-system lines of police, pro-
secution, courts, and corrections and then subdivided by
authority, tasks or rank related titles.

To create a common foundation for the descriptive
task statements in this chapter, the following functional

definitions were employed:

1. Management Function Personnel
The management personnel in an agency are those with
primary responsibility and authority by charter, statute,

ordinance, election or executive directive for achieving

120

the organizational mission. These personnel, within the
limits of that mission, determine agency policy, allocate
financial resources, implement policy, and manage and
direct subordinate organizational units. Frequently, the
size of the organization will permit distinctions between
top management and middle-management.
2. Supervisorprunction Personnel

These personnel in an agency are directly respon-
sible to management for seeing that tasks are performed
according to whatever criteria are utilized in the agency.
Normally, each supervisor is responsible for three to nine
line, specialist or other personnel, depending on the nature
of the duties, type of personnel, or other factors.

3. Line Function Personnel

These personnel perform the tasks which constitute
the reason for the existence of the organization or agency.
They are distinguished from.Specialist or professional
staff personnel in that line personnel provide the primary
service of the agency and the specialists or professionals
provide special supporting services to assidzthe line
personnel. This does not suggest that line personnel are
not or may not be professionals.

4. Staff Function Personnel

 

These personnel serve as staff support for line
personnel and are specialists in the services they perform.

They generally do not directly provide the primary services

121

of the organization or agency. These personnel may be
licensed or certified or possess other indicia of their
special skill, knowledge, etc.

5. Para-Professional Personnel

 

These personnel serve in a limited fashion to aug-
ment all or some of the other functions of the organization.
Their qualifications, remuneration, authority, responsibility,
work hours, etc., indicate their major role is to augment,

reinforce or temporarily substitute as the regular employee.

Although the major focus was upon the descriptive
task statements, a constant concern for judgmental criteria
and values was maintained. Innumerable conflicts were noted.
Conflicts are most commonly indicated by the racial strife,
public concern for street crime, prison unrest, juvenile
delinquency and the divisions among the public as to how
these problems should be solved or controlled.

To translate task statements into curriculum plans
necessarily involves some subjective interpretations,
analyses, and classification of these values. Negative
consequences, however, can be minimized by designing a
flexible curriculum that permits choices among values and
judgments for the agency administrator or the personnel
requesting the continuing education. They can then empha-
size values according to their situations or the composi-

tion of their programs.

122

A taxonomy of task statements was then used to
guide development of the model curriculum criteria. The
taxonomy served to provide the content base needed for the
curriculum.

The rationale of the criteria is stated in the form
of principles as they are central to the framework upon
which the curriculum is developed. They should be viewed
more as prOpositions than as principles, however, until
they have been validated by experience and future research.

The task statements are reported in cluster format
by major groupings. These groups when combined comprise
the functions listed and described above. The very diverse
tasks, services, etc., performed by agency personnel in the
criminal justice system make grouping difficult, requiring
arbitrary decisions with few guiding criteria. Secondly,
many personnel encountered in the data gathering process
do not fit into one functional category. This problem is

minimized, however, by identifying them by work tasks only.

Conclusion

 

This chapter has detailed the methods and procedures
used in executing the study. The study pOpulation was des-
cribed in terms Of its geographical characteristics, the
residents of the Region and its criminal justice agencies.
Each of the major sub-systems of criminal justice--the

police, courts, corrections, and prosecution--were identified

123

and described utilizing the results Of a census of the
agencies conducted as a preliminary step of the research
design.

A sample of twenty-two agencies was drawn using a
combination of stratified and judgmental sampling techniques.
Task listings and descriptions were then collected for all
positions within each of the sample agencies using a
standardized collection format. Date compilation consisted
of deve10ping taxonomies to provide a basis for clustering
similar tasks and giving some structure to the educational
needs thus identified. These needs were then reflected by
small subject matter units termed modules for this study.

Curriculum criteria and supporting rationale were
develOped to provide philosophical direction to any pro-
gramming that develOps from this study. Equally important,
the criteria and rationale tend to further identify the
value judgments that guided task clustering and module

identification.

CHAPTER IV

PRESENTATION OF FINDINGS AND DISCUSSION

OF RESULTS

Introduction

 

As noted in earlier discussions, the product of
this study, i.e., the proposed criteria and curriculum,
poses hypotheses for additional study and experimentation.
It is, in essence, one phase in the deve10pment of our-
riculum theory for the emerging discipline of criminal
justice. Certain findings reported herein, but unantici-
pated at the beginning, have implications for reshaping
criminal justice conceptually and for promoting much
additional and vitally needed research.

This chapter will present: (1) a conceptual model
of criminal justice functions using set theory principles,
(2) a taxonomy of task statements using a system, sub-
system, function, and element hierarchy, (3) criteria and
supporting rationale for a model curriculum, (4) the frame-
work Or modules for the model curriculum, and (5) other

findings that resulted from the study.

124

125

A Conceptual Model of Criminal
Justice

 

As a basis for the proposed criteria and curricu-
lum which resulted from this study, it is essential to
report the model used to conceptualize criminal justice as
an emerging discipline for educational purposes. During
the course of developing the criteria for curriculim de-
sign, it became evident that the term criminal justice,
though previously defined, lacked a meaningful conceptual
framework for continuing education purposes. It was fur-
ther evident that criminal justice was being shaped and
re-Shaped by the Congress, administrators of the Safe
Streets Act, numerous private foundations' financial in-
fluences, innovative local programming, state legislatures
and the Supreme Court.

To contend that criminal justice was simply an
aggregate of the contributions of various agencies was not
adequate. Also, it was not simply the combined services
of the police, prosecution, courts and corrections. It
became necessary to conceive of criminal justice as con-
sisting of three sub-systems that interrelate and are
complementary to each other in-so-far-as the Constitutional
provisions for check—and-balance or the separation of
powers will allow. Those three sub-systems are:

1. The Crime Control Sub-Sbystem,

2. The Adjudication Sub-System, and

126

3. The Habilitation Sub-System.

Figure 8, in schematic form, represents the ori-
minal justice system. It indicates the degree Of inter-
dependence found among the task statements (when grouped
by sub-systems). In terms Of set theory, each circle re-
presents one Of the system's sub-systems in the total
universe defined to be the environment in which the system
operates. Each sub-system (A, B and C) intertwines or
intersects with each other sub-system separately and
jointly. The area in each sub-system not intersecting
with another sub-system represents the tasks that are
unique to that sub-system. The intersection of A, B and
C represent areas in which the curriculum model can make
its most significant contributions, for this area of pro-
gramming is generally lacking in the study region. Cur-
riculum programming in these areas (the intersect of A,B
and C) should be very productive in terms of inducing
system and sub-system integration and the changes required
for most effective Operation within the system as a whole.

The criminal justice system model depicted by set
theory in Figure 18 is education oriented, but has unex-
plored potential for accurately depicting the system in
terms of its Operational characteristics, also. The in-
tersects are of prime theoretical and Operational impor-

tance and have implications for future research and

practice. Much of the problem of lack of coordination in

127

 

 

  

CRIME CONTROL

Va

HABILITATION ADJUDICATION

  

UNIVERSE

 

 

Fig. 8.--Set relationships depicting the functional inter-

Legend:

relations Of a criminal justice system.

Universe = The universe of functions.

ABC = All tasks except A, B and C.

A = Crime Control sub-system with its
unique training requirements.

B = Habilitation sub-system with its unique
training requirements.

C = Adjudication sub-system with its
unique training requirements.

A B = Tasks common to Crime Control and
Habilitation and amenable to shared
training.

B C = Tasks common to Habilitation and Adjudi-
cation and amenable to shared training.

A C = Tasks common to Crime Control and Adjudi-
cation and amenable to shared training.

A B C = Tasks common to all Criminal Justice

Sub-systems and most essential and
amenable to integrated continuing
education.

128

the criminal justice system today may be attributed to

the failure of public Officials and administrators to
recognize the overlapping of services, responsibilities,
training and education suggested by the interest areas of
Figure 8, eSpecially where all three sub-systems intersect
with all others.

The curriculum model proposed by this study will
be based upon the criminal justice system model proposed
here. References to the model will be made by using the
functional area and intersect symbols.

Another possible sub-system was considered for
inclusion in the models but it was rejected from consider-
ation in the present study. It was the legislative sub-
system. The legislative bodies of local, state and
federal levels of government create laws, or, in more
abstract terms, establish normative consensus. Other
parts or institutions of society create norms1 and should
be included in our criminal justice system, but were ex-
cluded as not manageable within the scoPe of this study.

Attention was also given to isolating another

sub-system, Crime Prevention, defined as the anticipation,

 

recognition, and appraisal of a crime risk and the

 

lSuch institutions are the family, the Church, the
courts (case law) and public administrators (administrative
decisions or rulings). These are similar to the legisla-
tive component of government in that they Operate to es-
tablish policy or standardize norms.

129

initiation of action to remove or reduce it. In terms of

 

change strategies, a separate sub-system designation may
become tactically wise, but, it is the Opinion of this
investigator that crime prevention must be seen as an
integral component of crime control and must be treated
as such if it is to assume its prOper role in criminal
justice. Accordingly, crime prevention is included as a
part of the Crime Control Sub-System.

One of the incidental findings reported at the end
of this chapter is the surprisingly important role of the
private sector in providing security from acts Of crime
for homes, individuals, school, business, industry, the
community, and public transit and housing authorities.

The inclusion of the personnel providing these services

in the crime control sub-system doubles the original num-
ber. The combined number of personnel approximate 800,000
individuals in the United States, or 1 out of every 250
persons in the entire population and l of every 100 in the
civilian work force.2 These crime related security per-
sonnel (both public and private) directly cost approximately
$8 billion.3 This does not include the direct loss from
acts of crime. Such a figure in 1969 represented a $40

per capita cost or 0.85% of the U. S. Gross National Product.

2Based on 1969 U. 8. Census and U. S. Department
of Labor Statistics.

3Based on a study by the Rand Corporation to be
completed in late 1971. Figures are approximate.

 

130

By including the private sector's role in crime
prevention and security, the model is made more complex,
but much more realistic in terms of goal achievement--
that of crime control or minimizing crime. The term "en-
vironmental security" has been coined to refer to this

joint public-private concern for crime.

Summary_of Task Statements

 

This section reports the grouping and clustering
Of task statements. Each statement keys off from an ac—
tion verb carefully selected to depict how the task is
performed in_the field. Frequently, conflicts were noted
between what was actually done in the organization by the
person performing a task and what the supervisor, manual,
or verbal description specified for the task. This point
applies primarily to the action verb rather than the
direct Object, although some variation was noted here,
also.

Several task statements could be sub-divided into
other task statements, but an effort was made to avoid
unnecessarily detailed delineation of the tasks. The
guiding criterion was whether the delineation was neces-
sary for relating the task to training within the curricu-

lum framework.

131

TOTAL SYSTEM

 

MANAGEMENT FUNCTION

 

A. TOP MANAGEMENT

 

RECRUITS and ORGANIZES Executive
Staff

DEFINES Organizational Mission

STRUCTURES Organizational Goals

PROMOTES Organization's Public
Relations

FORMULATES Policy

PROMOTES Intra-System Coordina-
tion

DEVELOPS Management Personnel

PROMOTES Executive Leadership
Role

PROVIDES Long-Range Planning
Direction

IDENTIFIES Desirable Changes

TRANSLATES Mission and Goals
to Organizational Structure

SEEKS Funds

DETERMINES Evaluation Criteria

CONCEPTUALIZES Development and
Growth

TRANSLATES Environmental Changes
to Organizational Needs

MAINTAINS Organizational Credi-
bility and Good Will

IDENTIFIES Program
Priorities

MAKES Decisions

MAINTAINS a Leadership
Style

UTILIZES Consultants

PARTICIPATES in Meetings

BARGAINS with Employee
Groups

DELEGATES Responsibility

DELEGATES Authority

DEVELOPS Power Base of
Subordinates

COORDINATES Major Organiza-
tional Units

ASSESSES Morale and
Motivation

MAINTAINS Press Relations

PROMOTES Community Rela-
tions

NEGOTIATES Funding

MAXIMIZES Political Power
Base

KEEPS Knowledge Base
Current

132

RESOLVES Internal Conflicts

CONDUCTS Staff Meetings

B. MIDjMANAGEMENT

 

ORGANIZES to Achieve Objectives
or Goal

DEVELOPS Program Objectives

RECOMMENDS Policy Changes

DISSEMINATES Information on
Policy

DEVELOPS a Personal Power
Base

PROVIDES Task Level Supervision

ASSIGNS Personnel to Jobs and
Positions

DELEGATES Authority

EVALUATES Personnel Performance

MAKES Expenditures

DEVELOPS Work Schedule

RECRUITS Personnel

SELECTS Personnel

CONSULTS Appropriate EXperts

MAINTAINS Communication
Channels with Sub-
ordinates

PROMOTES Community Rela-
tions

ORGANIZES Volunteers/
Para-Professionals

PROMOTES Public Relations

IDENTIFIES Potential Prob-
lems, Conflicts

COMMUNICATES with TOp
Management

MAINTAINS Inter-Agency
Relations

EXERCISES Fiscal Control

COORDINATES Staff Efforts
COORDINATES Functions
ALLOCATES Resources
DISCIPLINES Personnel

RESOLVES Problems and
Conflicts

PARTICIPATES in Callec-
tive Bargaining

DEVELOPS Applications
for Outside Funds

133

TOTAL SYSTEM

 

SUPERVISION FUNCTION

 

PERFORMANCE EVALUATION

 

MAKES Decisions

MAINTAINS Performance Records

INSPECTS Personnel

CORRECTS Undesirable Behavior

SUPPORT SKILLS

 

MAKES Decisions

SPEAKS to Interested Groups

PERSONNEL DEVELOPMENT

 

SCHEDULES On-Job Training

INDOCTRINATES New Personnel

COUNSELS Personnel

MOTIVATION

 

INITIATES Management Attention
to Good Work

INSTILLS Confidence in Subordi-
nates

ENFORCES Agency Standards
of Conduct

INSPECTS Equipment

INVESTIGATES Complaints
against Personnel

PROMOTES Inter-Group
Relationships

LEADS Subordinates

REPRESENTS Management to
Subordinates

INSTRUCTS in Training
Programs

CONDUCTS Roll-Call Train-
ing

ENCOURAGES Quality Task
Performance

134

FIELD OPERATIONS

 

SUPERVISES Field Situations

REPORTS Personnel Absences

PERFORMS Line Tasks When
Necessary

ASSIGNS Work Details

MONITORS Hourly Events

IMPLEMENTS Policy Decisions

COMMUNICATION

 

BRIEFS Personnel

COLLECTS and TRANSMITS Criminal
Intelligence

RECORDS

MONITORS Records Initiated
Below

ANALYZES Crime Data Summaries

MAKES Field Decisions

SERVES as Field Unit for
Specific Task

SETS and ACCEPTS Bond

PLANS Day-to-Day Produc-
tion

INITIATES Corrective
Action on the Spot

ADVISES Citizens of Law

MAINTAINS Contact with
Management

MONITORS Contact with
Subordinates

INITIATES Supervisory
Records

INITIATES Unit Work
Summaries

135

ADJUDICATION SUB-SYSTEM

 

LINE FUNCTION

 

A. PROSECUTION AND DEFENSE

 

INITIATES Case Records

DETERMINES Completeness of
Case

EXAMINES Evidence
REVIEWS Decisions with
Supervisor

SUBPOENAS Witnesses

MAKES Motions

PARTICIPATES in Pre-Trial
Conference

NEGOTIATES with Counterpart

FILES Appeals

DETERMINES Probable Cause for
Search Warrants

TAKES Depositions
INVESTIGATES Cases

ISSUES Emergency Mental
Hospital Commitments

B. COURT

 

EXECUTES Complaints
EXAMINES Evidence

INITIATES Court Record

CHECKS Record of Accused

INTERVIEWS Parties to
Offense

DECIDES Whether to Re-
commend Warrant

INITIATES Warrant
Requests

EXAMINES and CROSS-
EXAMINES Witnesses

APPEALS on Motion Rulings

DETERMINES Trial Strategy

EXAMINES Prospective
Jurors

ARGUES Appeals

AUTHORIZES Search War-
rants

CONDUCTS Legal Research
WRITES Reports

REPRESENTS Clients in
Probate Hearings

EXAMINES Witnesses
SWEARS Witnesses

ISSUES Warrants

136

COURT (cont.)

 

INPUTS Warrants to Computer
Bank

PROVIDES Formal Notice to
Defendants

DETERMINES Counsel Representa-
tion

DETERMINES Probable Cause
by Defendant

DETERMINES Ability to Stand
Trial

PREPARES Transcripts

HEARS Appeals on Motion

REVIEWS Pre-Trial Conference
Results

MAINTAINS Court Procedure

IMPANELS Jury

DETERMINES Guilt or Innocence

DETERMINES Need for Psychiatric
Examination

CONSIDERS Pre—Sentence Reports

DETERMINES Probable Cause for
Search Warrants

ISSUES Search Warrants

ISSUES Court Orders

ASSIGNS Appellate Counsel

ARRAIGNS Persons Arrested

ADVISES Defendants of
Rights

DETERMINES Probable
Cause of Offense

DETERMINES Bond or Cus-
tody

PROVIDES Examination on
Charge

HEARS Motions

HANDLES Pre-Trial Con-
ference

CONVENES Trial Court

DECIDES on Oral Motion
MANAGES Juries

ADVISES Jury of Relevant
Law

ASSIGNS Pre-Sentence
Investigation

SENTENCES Convicted
Defendants

EXAMINES Affiants for
Search Warrants

CONDUCTS Legal Research

PROCESSES Motions for
Appeal

CERTIFIES Court Record
for Appeal

137

COURT (cont.)

 

APPROVES Foster Care for
Juveniles

SUPERVISES Friend of the Court

APPOINTS Juvenile Referees

MAKES Institutional Commitments

DETERMINES Guardian Ad
Litem

ORDERS and INTERPRETS
Psychological Examina-
tions

COMMITS to State Mental
Institutions

TERMINATES.Probation/
Parole

138

CRIME CONTROL SUB-SYSTEM

 

LINE FUNCTION

 

CRIME PREVENTION

 

PROVIDES Conspicuous Patrol

REDUCES Crime Conditions

INDUCES Crime Awareness
PREVENTS Criminal Acts
CONDUCTS Field Inquiries
CONFRONTS Potential Crime
Perpetrators

WORKS with Juvenile Groups
and Schools

UNDERSTANDS Crime Causation

MAINTAINS Familiarity with
Assigned Beat, etc.

EASE CONSTRUCTION &
PRESENTATION

 

 

SUPPLEMENTS Case Investigation
INTERVIEWS Persons

ADVISES of Legal Rights
CONSULTS with Prosecutor

TESTIFIES in Court

MAINTAINS Chain-of-Custody
for Evidence

HANDLES Dogs (K-9)

NEUTRALIZES Domestic
Conflicts

MINIMIZES Crime Loss
EDUCATES the Public

DISCERNS Out-of-the-
Ordinary Conditions

PROMOTES Favorable
Police Image

PROVIDES Criminal Intel-
ligence to Superiors

SENSITIZES Self to Cross-
Cultural Strains

CONDUCTS Lineups
EXERCISES Discretion
CONDUCTS Raids
CHECKS Leads

BUILDS Rapport with In-
dividuals

UTILIZES Information
Banks

139

CASE CONSTRUCTION &
PRESENTATION (cont.)

 

 

SEEKS Expert Analysis of
Evidence

MAKES Arrests
CONDUCTS Searches

SEEKS Court Processes

EMERGENCY & DISASTER SERVICES

 

INITIATES Alarms to Residents

ASSISTS Fire Department
Personnel

‘ s

COMPLAINT INVESTIGATION

 

PROVIDES Immediate Response to
Complaints

NEUTRALIZES Incidents

MAINTAINS Readiness to Respond
to all Incidents

ASSESSES Distress Situations
ORGANIZES and DIRECTS Remedial
Action

DOCUMENTS Action

INTERVIEWS Persons

ADVISES Parties of Legal Rights
SAFEGUARDS Evidence

TAKES Photographs

MAKES Sketches

COOPERATES with other
Agencies

TAKES Confessions

WORKS Undercover

PROVIDES Rescue Services

MAINTAINS Civil Defense
Readiness

INTERPRETS Evidence

ASSISTS Coroner

INVESTIGATES Applicants'
Background

MAKES Referrals to
Federal Agencies

LOCATES Missing Persons
MAKES Prompt and Effec-
tive Decisions
EXHIBITS Mature Judgment
INITIATES Action
RESTRAINS Persons

FINGERPRINTS Persons

140

EXECUTION OF COURT PROCESSES

 

MAKES Arrests
SEIZES Property

TRANSFERS Prisoners

MONITORS Wiretaps

MAINTAINS Peace

HAZARD REDUCTION

 

RESPONDS to Calls, Alarms, etc.

ASSESSES Hazards

CONTROLS Crowds

MAINTAINS Relationship with
Support Services

IDENTIFIES Assistance Needs

PREVENTS Strike Conflicts

PHYSICAL SECURITY

 

IDENTIFIES Crime Hazards

ISSUES Summonses

ENLISTS Voluntary Reduction of
Hazards

PROVIDES School Security

CONDUCTS Searches
INVENTORIES PrOperty

MAINTAINS Custody of
PrOperty and Persons

MAKES Returns on Pro-
cesses

RECOGNIZES Hazardous
Situations

SECURES Hazardous Areas

ORGANIZES Hazard Reduc—
tion or Elimination

ADVISES Appropriate Of-
ficials, Individuals,
etc.

MONITORS and IDENTIFIES
Radiation Hazards

MAINTAINS Document
Security

IDENTIFIES Fire and
Safety Hazards

INSPECTS Buildings

CREATES Public Awareness
of Crime Hazards

141

PHYSICAL SECURITY (cont.)

 

INSTRUCTS Public Information
Classes

ISSUES Warnings

PROTECTS Persons

TRAFFIC CONTROL

 

DIRECTS Traffic

ISSUES Violation Notices

INVESTIGATES Accidents

ASSESSES Traffic Accidents
INITIATES Reports
RE-CONSTRUCTS Accidents

MAKES Arrests

ASSESSES Traffic Flow
PROTECTS Accident Scene
RENDERS First Aid

SEEKS Ambulance and Medical
Support

OPERATES Electrical Control
Devices

PUBLIC INFORMATION & SERVICE

PROVIDES Information to Citizens

GUARDS Buildings, Shop-
ping Centers, Busi-
nesses, etc.

PROVIDES Access Control

SECURES Election Facili-
ties

ENFORCES Parking Regula-
tions

INTERVIEWS Witnesses

PREPARES Formal State-
ments

EVALUATES Accident Damage
CLEARS Accident Scenes
CONTROLS Crowds

IDENTIFIES Assistance
Needs

ISSUES Warnings
USES Roadblocks
PROVIDES Escorts

USES Channelization De-
vices

PROVIDES School Crossing
Services

ADVISES Other Government
Service Agencies

142

PUBLIC INFORMATION & SERVICE (cont.)

BRIEFS Press Members
EXPLAINS Laws
REFERS to Other Criminal

Justice Agencies

PARTICIPATES in Ceremonies

REGULATORY SERVICES

 

INSPECTS Buildings and other
Regulated Places

INSPECTS Citizens' Weapons

INSPECTS Licenses

INSPECTS Vehicles

CROWD CONTROL

 

PARTICIPATES in Planning

EXECUTES Assigned Task(s)

MAINTAINS Good Public Relations

IDENTIFIES Confrontation
Organization

ISOLATES Designated Individuals

RESTRAINS Individuals

INITIATES De-escalation
Techniques

PROVIDES Road and Traffic
Conditions

ACTS as a Civil Defense
Agent

PROVIDES Traffic Safety
Education

LICENSES Taxis, Bicycles,
Vendors, Etc.

ENFORCES Health Regula-
tions

WEIGHS Vehicles

GIVES Drivers' License
Road Tests

USES Offense Equipment

RESTORES Equilibrium to
Social Groups

ASSESSES Confrontations

TRANSMITS Intelligence to
Supervisor

EXERCISES Discretion in
Use of Force

DISPERSES Groups

USES Protective Equip-
ment

143

ANIMAL CONTROL

 

INSPECTS Animals

RESTRAINS Animals

RECORDS INITIATION

 

KEEPS Daily Activity Records

BOOKS Prisoners

MAINTAINS Surveillance Logs

SUPPORT SKILLS

 

USES Weapons

MAKES Rapid Decisions

DRIVES Pursuit Vehicles
PROVIDES Jail Service
PROVIDES Field Training of

New Personnel

ENDURES Monotony

MAINTAINS Objectivity
ENDURES Abuse

EXERCISES Discretion Based
on Law and Policy

OPERATES Cameras

EXERCISES First Aid

NEUTRALIZES Dangerous
Animals

EXERCISES Health Measures

INITIATES Complaint Re-
ports and Supplements

BONDS Violators

MAINTAINS Communications
Logs

DRIVES Marked and Un-
marked Autos

DRIVES Motorcycles

RIDES and MAINTAINS
Horses

OPERATES Fixed Wing Air-
craft

OPERATES HeliCOpters

DRIVES Rescue and Ambu-
lance Units

USES and SERVICES Weapons

INTERPRETS Law

INFLUENCES Others'
havior

Be-

OPERATES Recorders

EXHIBITS High Personal
Integrity

144

SUPPORT SKILLS (cont.)

 

MAINTAINS a Balanced
Personal Perspective

MAINTAINS a Self-Assured
Bearing

INDOCTRINATES New Officers

UNDERSTANDS Tort Liability
of Actions

USES Scuba

UNDERSTANDS Mental Problems

OBSERVES and REPORTS Events

OPERATES Communication Equip-
ment

SEARCHES Crime Scenes

USES Psychology
LISTENS to Others

ASSISTS Child Deliveries

TOLERATES Stress

ADAPTS Easily to New
People, Places, Etc.

USES a Typewriter

SWIMS Under Handicaps

MAINTAINS Physical Fit-
ness

TAKES Notes

WRITES or DICTATES
Reports

MAKES Fingerprint Iden-
tifications

USES Identi-kit

SPEAKS to Persons,
Crowds, Etc.

ADJUSTS to Situational
Factors

APPLIES Standards of
Ethics

145

HABILITATION SUB-SYSTEM

 

LINE FUNCTION

 

PAROLE

INTERVIEWS Parolees

INTERVIEWS Contacts of Parolees

INITIATES Records

COUNSELS Parolee and Relatives
ARRANGES Parole Revocations
MAINTAINS Relationship with
Crime Control Personnel
ASSISTS with Employment

ENFORCES Rules

ARRANGES Temporary Detention

PROBATION

 

PERFORMS Pre-Sentence Investi—
gation

RECOMMENDS Disposition Plans

WRITES Reports

ASSISTS with Employment

INTERVIEWS Client

UTILIZES Community Re-
sources

FUNCTIONS as "Arm" of the
Court

INTERPRETS Parole to the
Public

MANAGES Caseloads

ESTABLISHES Relationship
with Community

IDENTIFIES Referral Re-
sources

SOLVES Practical Problems

PROVIDES Educational or
Training Assistance

SUPERVISES Para-
Professionals

UTILIZES Community Re-
sources

FUNCTIONS as Extension of
Court

INTERPRETS Community
"Standards"

INTERPRETS Probation to
the Public

MANAGES Caseloads

146

PROBATION (cont.)

 

COUNSELS Client

IDENTIFIES Probation Violations

ENFORCES Rules

APPLIES for Petitions (Juvenile)

INSTITUTIONAL CUSTODY

 

RECEIVES Inmates

CHECKS Commitment Credentials
SEARCHES Inmates

SUPERVISES Inmates

MONITORS Groups of Inmates
EXERCISES Disciplinary Control

INSPECTS for Contraband

COUNSELS Inmates
RECEIVES Grievances
CENSORS Mail

OPERATES Security Devices

INSPECTS Security Devices

MAINTAINS Facility Security

SUPERVISES Inmate visits

TRANSPORTS Prisoners

SUPERVISES Work Performance

IDENTIFIES Referral Re-
sources

SOLVES Problems of Client

SUPERVISES Para-
Professionals

ADMINISTERS First Aid
INVESTIGATES Accidents
SEARCHES for Evidence
COLLECTS Evidence
TESTIFIES about Incidents
MAINTAINS Equipment

PROMOTES Good Public
Relations

ESCORTS Visitors
ESCORTS Inmates
INITIATES Reports

INTERPRETS Rules and
Policies

SHAPES Inmate Attitudes

MAINTAINS Attitude of
Fairness

IDENTIFIES Out-Of-
Ordinary Circumstances

DEMONSTRATES Impartiality

MAINTAINS Personal In-
tegrity

147

INSTITUTIONAL CUSTODY (cont.)

 

PREVENTS Fighting

RESTRAINS Inmates

HANDLES Emergencies

MAKES Arrests

EXERCISES Sensitivity to
Morale, Rumor, Etc.

PREVENTS Trouble

SUPERVISES Recreational
Activities

HANDLES Alcoholics
SECURES Potential Suicides

RECOGNIZES Diabetics

INSTITUTIONAL AND DIAGNOSTIC
TREATMENT

 

 

ASSESSES Inmate Needs

INTERVIEWS Inmates

ANALYZES Records

DETERMINES Educational Needs

IDENTIFIES Personality Disorders

IDENTIFIES Potential Suicides

PROVIDES Education Programs

PLANS Programs, Activities,
Services

INSTILLS Self-Respect

FILES Charges Against
Inmates

PREVENTS Escape Efforts

NEUTRALIZES Group Dis-
orders

SUPERVISES Trustees

USES Riot Equipment

USES Firearms

HANDLES Drug Abusers
HANDLES Mental Patients

RECOGNIZES Epilepsy

DETERMINES Treatment
Program

INITIATES Records

ARRANGES Psychiatric
Services

FACILITATES Participation
in Religious Activities

IDENTIFIES Mental Prob-'
lems

IDENTIFIES Physical
Illnesses

PROVIDES Recreational
Activities

148

TOTAL SYSTEMS

 

STAFF FUNCTION

 

FILES Records
TYPES Records
ROUTES Records

MICROFILMS Records

MAINTAINS Accounts

HANDLES Mail

RECEIVES Clients

SCHEDULES Hearings, Trials, Etc.

TRANSCRIBES Dictation

PROVIDES Legal Secretarial
Services

DISPATCHES Personnel

TRAINS Personnel

COLLECTS Data

PREPARES Transcripts

WRITES Applications for Funds
RESOLVES Problems

ISSUES Equipment and Supplies
PROCESSES Payroll

INTERVIEWS Personnel and
Applicants

MAINTAINS Files
INSTITUTES Records
ANSWERS Telephone

PROCESSES Court Orders,
Legal Processes, Etc.

PROCESSES Fines
MAINTAINS Dockets
MAKES Appointments
TAKES Dictation

RECEIVES and RECEIPTS
Money

RECORDS Court Testimony

RECEIVES Client Inquiry

HANDLES Emergency Dis-
patches

MANIPULATES Data

TESTS Equipment
ASSESSES Problems
EVALUATES Field Actions
PURCHASES Material

TESTS Personnel and
Applicants

ORIENTS Personnel

CONDUCTS Applied Research

CALCULATES Sentences

COLLECTS Fees

PROMOTES Public Relations

ADMINISTERS Oaths

Task statements were not developed for the follow-
ing staff positions because their special training and
education requirements which are generally provided for in
existing institutions, or because the low number of the
positions in the Region prohibit Offering courses and pro-
grams for the given specialization.

Physician
Dentist
Psychiatrist
Psychologist
Teacher
Accountant
Posting Machine Operator
Keypuncher
Printer

Auto Repariman
Nurse

Cook

Baker

Meat Cutter
Occupational Therapist
Seamstress

Farmer

Chaplain

Employment Specialist
Custodial Personnel
Machinist

Radio Maintenance

Band Director

EDP Equipment Operator

Computer‘Programmer

150

Model Curriculum Criteria
and Rationale

 

Curriculum criteria are value judgments which,
when accepted, become universals or generalized truths
and serve as standards or benchmarks against which curri-
cula may be developed and evaluated. It_is the purpose
of this section to identify the value considerations or
criteria and their supporting rationale used to produce
the Specifics of curriculum design reported in the next
section. These criteria are presented in the form of

declarative statements followed by supporting rationale.

The Curriculum Should Be
Student Centered

The traditional and predominant practice among
personnel development programs in criminal justice agencies
is process or content oriented. It is essential that the
curriculum, which in its broader context includes instruc-
tion, staffing, testing, counseling, class composition,
and evaluation, be oriented to the individual worker-
student.

a. Instruction. Instead of building the instruc-
tional unit around subject matter and a paired instructor
based on subject matter competency, instruction should be
focused on the learning needs of the student(s) paired

with instructional staff who are learning facilitators.

151

Instructional units should be constructed as learning
modules representing integrated and sequenced learning
sets that allow individualization of each student's pro-
gram and requires prescribed competency achievement for
progression in that program. Formal and informal learning
activities should be available utilizing multi-media re-
sources and scheduling that accommodates the full-range
of a student's needs including job and family considera-
tions.

b. Staffing. Staff for the Center and Institute
should be of two basic types--facilitators and resource
specialists. Facilitators defined to be specialists in
learning are administrators, staff supervisors, curricu-
lum specialists, testing Specialists, counseling special-
ists, media specialists, and learning coordinators who
coordinate the learning activities of the students.
Resource specialists are those persons with subject mat-
ter competence used as resource individuals for the
students. The primary focus will be on learning, not on
instruction.

c. Testing. Testing services Should be readily
available to assist students in the assessment of their
competencies and learning progress. It is viewed as an
integral component of counseling, individualized learning,
and student grouping. Testing also provides the founda-

tion for an evaluation component in the curriculum.

152

d. Counseling. The heart of any individualized

 

learning program, or, more broadly, any institution that
individualizes its curriculum, is a counseling capability
to assist learners to assess learning needs, learning
progress, learning problems, etc., on an in—depth personal
basis. A better term could probably be selected to iden-
tify this function to avoid any negative treatment or
remedial connotation, but this is not identified as es-
sential at this time. The major purpose of a good counsel-
ing service is to match individuals or homogeneous groups
with continuing education program elements that meet

their needs.

e. Class Composition. Many learning activities

 

will continue to be Offered on a group basis where group
composition will be essential for the success of the
learning activity. Accordingly, counseling and testing
will be used to effectively group learning activities
into modules that consider the group's characteristics in
terms of learning ability. The rigidity of traditional
class groupings will be reduced or removed to minimize
the problems of frequency-Of-Offerings. These problems
have traditionally plagued agency administrators faced
with pre-service and in—service training requirements
associated with recruiting-and hiring new personnel.

f. Evaluation. For student-oriented curriculum

 

to be successful, evaluation of the curriculum must be

153

similarly oriented. Under an instruction-oriented cur-
riculum, evaluation was usually based on an absolute scale.
and students were graded or evaluated only on the basis

of what they knew at the end of a teaching or instruc-
tional unit in terms of the absolute standards. A
student-oriented curriculum will focus on what the student
actually learns from the beginning (or entry) point of the
module to the ending (or exit) point. This does not pre-
clude the requiring Of fixed standards Of performance.

It does assume that different workers will achieve those
standards at differing rates and, perhaps, by differing

learning processes.

The Curriculum Should Be Relevant
To Job Performance

Learning modules should be designed giving atten-
tion to the tasks actually performed by the students as a
part of their jobs. The skills, attitudes, values, and
knowledge needed for each task should be identified to
allow more efficient structuring of learning activities
and subsequent evaluation. Care should be exercised,
however, to not overlook the needs of the student as an
individual in society, or, put another way, to make sure
that the individual's personal learnings which are essen-

tial for job success and as a citizen are not overlooked.

154

The Curriculum Should
Be Change-Oriented

a. To keep the curriculum dynamic, a kaypadminis-
trator should be appdinted with primary respon-
sibility to see that an atmosphere of change{l
innovation and experimentation exists in the
organizatiOn and in the learning situatiOn.

The central prominence of such a responsibility-
accompanied by adequate authority should clearly indicate
the importance of this role in keeping both the organiza-
tion and the curriculum dynamic and responsive to the
needs of local criminal justice agencies and their person-

nel.

b. A life-long learning desire should be instilled
id everygworker-student as an objective of
every program in the curriculum. Accordingly,
the institutiOn should reflect means for the
worker-student to achieve that goal.

The curriculum should be designed to encourage
instructors, counselors and other staff to develop the
program as an educative environment and to instill in all
criminal justice personnel participating in the programs
an appreciation and desire for continued learning. This
criterion also implies that the Institute and Centers
should, along with the agencies, provide the means for
the continuing education of the personnel in and out of
the classrooms.

c. An educational and training research component

staffed by professional researchers should
systematically provide for evaluating program

effectiveness and curriCulum innovation and
keeping_students change conscious.

155

Professional researchers with training in the
dissemination of innovations, change techniques, etc.,
should be utilized for determining program effectiveness
in terms of job performance. Such a staff should also
have reSponsibility for the criteria and techniques de-
signed to keep the curriculum and instruction dynamic.
Inherent in this point is that a concern should be main-
tained by staff for acclimating students to the constant
dissemination of ideas, Change and evaluation within their
organizations or work environment.

d. At least 10% of the programmingshoUld be of

the "trailblazer" or experimental type to keep
the curriculum dynamic.

 

To keep the curriculum dynamic and improvement-
oriented, a constant atmosphere of experimentation, innova-
tion and change Should be maintained. By requiring that
at least 10% of all programming be of an experimental
nature, the research staff is provided with some direct
involvement in the curriculum. This will provide a means
for field testing new ideas, teaching techniques, instruc-

tional media, evaluation techniques, etc.

Curriculum Design Should Allow For the
Progressive Development of Continuing
Education Programming Towards A Uni-
fied, Professional Model of Education

This criterion asserts that the professional edu-

cational model is the most desirable model for guiding the

156

development of the curriculum in this field. Obviously,
all segments of the curriculum will not be acceptable to
all agency administrators. During the development period
especially, provision should be made for a broad range Of
types of programming with progressive movement towards
unifying the curriculum as experimentation and curriculum
research guide such development. This gradual evolution
towards a professional education model must also involve
university and college programs related to criminal

justice.

The Curriculum Should
Be System-Oriented

To allow for progressive change towards a unified
system of criminal justice in keeping with democratic
principles of justice, the curriculum should be system-
oriented. Utilizing the interfacing suggested by the set
theory model of the criminal justice system reported
earlier, this criterion suggests a gradual, progressive
change toward joint programming between the sub-systems
of criminal justice.

The similarity of the listings and clustering of
task statements reported earlier demonstrate the degree

of commonality among sub-systems.

157

At Least 25% of All Programming
Should Be In The Behavioral
Science Content Area

Recognizing the void currently existing in most
agency sponsored training programs, this criterion calls
for a strong orientation to the behavioral sciences.
This is deemed to be critical Since criminal justice deals
primarily with human behavior. The minimal figure of 25%
will undoubtedly be raised as learning techniques, materials
and evaluation techniques become adapted to the content
areas and as field acceptance increases. The behavioral
sciences are defined to include psychology, sociology,
communications, history, economics and criminology as

being most relevant.

The Curriculum Should
Be Goal-Oriented

All programming should be sub-divided into learn-
ing modules properly sequenced to permit all learning
activities to be oriented toward the achievement of Ob-
jectives and goals. Such structuring will encourage
staff and user-agency administrators to begin giving some
attention to the precise identification of what is deemed
desirable and undesirable. Obviously, good testing, re-
search, evaluation and counseling services will facilitate

implementation of this criterion.

158

The Curriculum Should Build On
The Experience Of The Students

Learners homogeneously grouped on the basis of
their general type-Of-work categories should be able to
better relate to problems confronted in the learning
situations. Adult problem-oriented learning is likely to
be most productive when learners can use their own experi-
ences and the experiences of others who face similar prob—
lems in different settings to assist them. By utilizing
the learners' intra-agency and inter-agency eXperiences,

job relevancy also tends to be more easily observable.

The Framework of the
Model Curriculum

 

 

The proposed curriculum model was developed using
the criteria listed in Section C and the task statements
listed in Section B. Realistically, however, it reflects
value judgments of this investigator, political realities
Observed in Region One and the State of Michigan and im-
plementation strategies selected to facilitate acceptance
of the curriculum by criminal justice personnel, agency
administrators, elected Officials, university and com-
munity college officials and other interest groups.

As noted earlier, a curriculum as presented in
this section is incomplete without a description of the
staff, instructors, instructional techniques, and re-

source material and the learning activities. Each helps

159

to determine the ultimate success of the entire educational
and training effort and each must be assumed to exist in
reasonable quantity and quality as described in the pre-
vious Section on model criteria.

All learning may be divided into three groups--
cognitive, affective and motor-skills. Learning activities
may involve a single grOUp, any two groups, or all three,
and are defined as follows:4

Cognitive--that learning which deals with the re-
call or recognition of knowledge.

Affective--that learning which deals with changes
in interest, attitudes, emotions, biases and
values, and the development of appreciations
and adequate adjustment.

Psycho-Motor--that learning which deals with in-
tellectual, muscular or motor skills, some
manipulation Of ideas, material and objects,
or some act which requires rational or neuro-
muscular coordination. Generally, the
deve10pment of abilities and skills.

The use of such groupings for learning activities allows
the development of a taxonomy to classify, label and
structure a hierarchy of subject matter and learning goals
or Objectives. It also allows curriculum personnel and
researchers to seek a higher order of quantification and
concept definition needed to improve curriculum applica-

tions and research. Although such precision is beyond

 

4Benjamin S. Bloom, Ed., Taxonomy of Educational
Objectives: The Classification of Education Goals (New
York: David McKay Co., Inc., 1956), pp. 7-8.

160

the realm of this study, the potential of such groupings
and taxonomies is recognized for subsequent refinement of
the curriculum framework proposed here.
The major curriculum program areas and sub-programs
which form the skeleton of the curriculum are as follows:
PROGRAM AREA I. SUB-SYSTEM PROFESSIONALIZATION
SUB-PROGRAM A-CRIME CONTROL
SUB-PROGRAM B-HABILITATION
SUB-PROGRAM C-ADJUDICATION

PROGRAM AREA II. HUMAN, BEHAVIORAL & SOCIAL
SCIENCES

PROGRAM AREA III. LEGAL
PROGRAM AREA IV. INVESTIGATION AND CRIMINALISTICS

PROGRAM AREA V. SKILLS
SUB-PROGRAM A-PHYSICAL CONDITIONING
SUB-PROGRAM B-WEAPONRY
SUB-PROGRAM C-PRACTICUM
SUB-PROGRAM D-STAFF SUPPORT
SUB-PROGRAM E-OTHER

 

PROGRAM AREA VI. SUPERVISION

PROGRAM AREA VII. MANAGEMENT

PROGRAM AREA I. SUB-SYSTEM PROFESSIONALIZATION

Each of the sub-systems Of criminal justice have
tasks that are unique to that sub-system. Schematically,
those tasks are depicted as the areas labeled A, B and C
in Figure 8. Programming in this area is identified as
the professional training and education unique to the re-
spective sub-system and does not overlap with the other

sub-systems or program areas.

161

PROGRAM AREA II. HUMAN, BEHAVIORAL & SOCIAL SCIENCES

 

This program area includes material from sociology,
psychology, human relations, communications, social work,
history, criminology, anthropology and the other disci-
plines and fields Of study concerned with group and human
behavior. Generally, the programming involves material
having job-utility, but a certain amount Of conceptual or
theoretical material is required as a foundation. A rela-
tively large percentage of the programming in this area
should be experimental and innovative in an effort to meet

job needs.

PROGRAM AREA III. LEGAL

 

Law is an essential programming area for nearly
all training and education in criminal justice. Histori-
cally, law has been the foundation of criminal justice;
but it is gradually lessening its central prominence in
favor of the increasing acceptance and utilization of the
behavioral sciences. Law is undoubtedly one of the major
program areas depicted by A B C in Figure 8. The rate of
change in case and statutory law and its concomitant ef-
fect on the criminal justice sub-system suggests that this
program area will be a major continuing education area

simply in keeping all personnel current.

162

PROGRAM AREA IV. INVESTIGATION AND CRIMINALISTICS

 

The content of this program area is common to
several positions in all three sub-systems. It reflects
the body of knowledge essential for personnel seeking to
determine the facts of an event, act, omission, case his-
tory, etc. It also includes that area of investigation,
evidence analysis, testimony, etc., requiring specialized

and expert scientific knowledge to handle.

PROGRAM AREA V. SKILLS

 

The Skills Program Area groups learning that is
skills-oriented and is concerned with the actual doing or
performance of a task or skill. Cognitive and affective
learning should also be a part of the programming in this
area, but the major focus is upon the acquiring, improve-
ment or maintenance of skills. Problem solving and logi-
cal thinking, as skills, are included in this program

area.

PROGRAM AREA VI. SUPERVISION

 

This program area includes programming designed
for personnel supervising other personnel. Obviously, it
draws heavily from Program Area II. The commonality of
educational needs among supervisors across all agencies of

criminal justice permits a high percentage of programming

163

that may be designed for all supervisors regardless of

which part of the criminal justice system they are from.

PROGRAM AREA VII. MANAGEMENT

 

The management program is depicted as one of the
areas reflected by the A B C section of Figure 8. It
should serve to induce organizational change and create
a systems approach to criminal justice by coordinating
management training and education among all the sub-
systems of criminal justice.

The framework of the curriculum is constructed by
small instructional units called modules. These modules
are minimally described using descriptive labels generally
acceptable and understood by the personnel of criminal
justice agencies. NO effort was made to define the amount
of time to be spent on each module as this factor will
vary significantly among the Centers and Institute depend-
ing on instructional technique, composition and definition
of each module's subject matter, type and quality of in-
structional staff, characteristics of participating
students, etc.

The modules listed do not reflect an instructional
format. It may be a seminar, a lecture class, a workshop,
a Simulated case or game, a discussion group, etc., and
it is expected that the instructional format will be

varied to allow for experimentation and change.

164

The curriculum framework presented is change-
oriented as it attempts to cross the traditional sub-
systems Of police, courts, prosecution, corrections and
security to allow for cross-training and education among
the total criminal justice system. Only the first program
area retains any degree of separation among the sub-systems
by recognizing that some training and education needs to
be separated by the sub-systems. This is conceptually

indicated by Figure 8.

I. PROGRAM AREA - SUB-SYSTEM PROFESSIONALIZATION

 

A. Crime Controls

 

Boat and Water Safety

Crime Analysis

Domestic and Civil Conflicts

Drug Abusers and Alcoholics

Family Crisis Intervention

Hazards Identification and Reduction
Intelligence Coordination

Internal Affairs Investigation
Prisoner-Processing

Surveillances, Stake-outs and Raids

 

5The State of Michigan has promulgated a 256-hour

curriculum required Of all new police officers--See Appen-
dix A. It should be recognized as a separate course or;
program for crime control personnel.

165

Team Policing
Traffic Accident Investigations
Traffic Accident Reconstruction

Traffic Control

 

Arrest, Search and Seizure Techniques
Classification Personnel Induction

Community Based Treatment

Drub Abusers and Alcoholics
Habilitation by Security Personnel
Para-Professional Orientation
Parole Officer Induction

Probation Officer Induction

B. Habilitation
Counseling
C. Adjudication

 

Bonding Practices

Court Management

Criminal Court Processes

Evidence Analysis-Expert Testimony
Evidence Procedure and Analysis
Grand Jury Management

Jury Management

Juvenile Adjudication

New Judge Induction

New Prosecutor Induction

166

Pre-Trial Conferences
Pre-Trial Hearings

Problems of Civil Disorders
Prosecution Management
Sentencing Practices

Trial Practices

II. PROGRAM AREA - HUMAN, BEHAVIOR & SOCIAL SCIENCES

 

Behavioral Aspects of Investigation
Change and Innovation
Communications-Dissemination and Utilization
Comparative Political Systems

Conflict De-escalation Techniques
Counseling

Crime Patterns in the Local Environment
Criminal Deviation and Conformity
Cross-Cultural Relations

Ethics and Professional Responsibility
Field Decision Making

History of Criminal Justice

Local Community Resources

Local Government

The Nature of Crime

Personality Analysis

Politics, the Political Process and Criminal
Justice

167

Psychology of Conflict and Stress
Research Evaluation
The Social Psychology of Group Behavior

Staff Decision Making

III. PROGRAM AREA - LEGAL

 

Administrative Law

Admissions and Confessions

Arrest, Search and Seizure

Civil Disorder Law

Civil Law

Constitutional Law and Due Process
Court Procedures

Family and Child Law

Federal Law

Labor-Management Law

Law and Syndicated Crime

Law Foundation and Social Dynamics
Law Of Evidence

Liquor Law

Ordinances

Policy and Discretion in Law
Statutory Law

Traffic Law and Regulations

168

IV. PROGRAM AREA - INVESTIGATION AND CRIMINALISTICS

 

Applicant Investigation
Case Reporting and Preparation

Collection, Identification and Preservation
of Evidence

Crime Scene Search

Crimes Against Persons

Crimes Against Property

Crimes Against Public Morals
Criminalistics

Criminalistics for Non-Criminalists
Evidence Technician

The Expert Witness

Fingerprint Classification and Searching
Fingerprinting and Personal Identification
Interviewing

Moot Investigation

Note Taking

Photography

Pre-Release Investigation

Pre-Sentence Investigation

Principles of Investigation
Probabilities in Evidence

Sources of Information

Syndicated Crime

V.

169

PROGRAM AREA - SKILLS

 

A.

Physical Conditioning

Crowd Control

Defensive Tactics

Disarming and Control Techniques
GrouP Exercises-Calisthenics
Offense Tactics

Swimming

Unit Tactics
Weaponry

Automatic Weapons Use
Baton Use

Discretionary Use Of Force
Firearms Maintenance
Gas Use

Judgment Firing

Night Weaponry
Non-Lethal Firearms Use
Revolver Use

Rifle Use

Shotgun Use

Special Weapons and Tactics (SWAT) Teams
Practicum

Crime Control Gaming

170

Cross Sub-System Practicum
Court Management Gaming
Field Practicum

First Aid

Management Practicum

Mental Hospital Visit

Moot Court

Morgue Visit
Para-Professional Practicum
Practicum Instruction
Raids, Search, Frisk and Seizure
Rescue Services

Riot Control
Staff Support

Account Clerk

Bookkeeping

Budgeting

Communications (Police)

Court Clerk

Court Transcription

Grant Application Submission
Personnel Testing and Evaluation
Principles of Andragogy
Purchasing

Records and Record Management

171

Secretary

Teaching Aids
Typing

E. Other

 

Building Security

Campus Security

Commercial Establishment Security
Commercial Pilot

Correctional Facility Security
Emergency Vehicle Operation
First Aid

Helicopter Pilot

Horsemanship

Jail Security

Lifesaving

Motor Scooter Operation
Motorcycle Operation

Personal Communications Skills
Private Pilot

Radio Repair

Rescue Swimming

SCUBA

‘VI. PROGRAM AREA - SUPERVISION

Decision Making

Human Relations in Supervision

172

Leadership Development

Manpower Allocation

Performance Control

Personnel Counseling

Personnel Development

Planning, Research and Development
Property Control

Records and Records Management
Supervising Civil Disorders
Supervising Crowd Control

Supervising Professionals

VII. PROGRAM AREA - MANAGEMENT

Collective Bargaining

Community and Political Relations
Conflict Resolution

Decision Making

Executive Development

Field Command and Control

Fiscal Control

Implementation

Management Budgeting

Manpower Allocation

Meeting Management

Organizational Theory and Analysis

Planning, Research and Development

173

Policy Determination
Selecting Management Personnel

Staff and Work Unit Coordination

Other Findinga

 

This project has provided an excellent forum for
viewing the traditionally separate sub-systems of courts,
prosecution, corrections and police as a system. The im—
petus provided by the project design requiring a coordi-
nated and system-oriented curriculum encouraged viewing
the system from a different perspective than usual. Thus,
in addition to the major findings of the study reported
earlier in this chapter, several incidental findings were
identified and are reported in this section.

In striving for efficiency in the justice system,
there is a continuous awareness of costs and the return in
benefits for those costs. In searching for the best train-
ing and education curriculum for criminal justice person-
nel, it becomes easy to overlook the central focus on
justice. The primary reason the criminal justice system
exists is to allow society to strike a balance between
the interests of society, the wrong-doer, and the wronged.
To strike this balance is not easy and cannot be done by
a rigid formula. It requires personnel in all functions
and sub-systems of justice to have an understanding, an

appreciation for, and a personal conviction about that

174

which is just and equal. The numerous interviews and ob-
servations of practice revealed a wide disparity between
subdsystems, between agencies of the same type within a
sub-system and between personnel within an agency. Such
disparity indicates foundation level problems in our legal
system and justice organizations, the magnitude Of which
is not easily identifiable from a study of this nature.

A second incidental finding was that performance
standards varied sharply between communities. Performance
standards of justice personnel seemed to vary according
to community size and the degree of heterogeneity of the
community. The quality of performance expected of small,
rural community justice personnel was not too unlike that
of the very large community, but for communities between
approximately 50,000 and 100,000 in population, community
concern for standards appeared to be much higher. This
concern for performance standards was assessed on the basis
of concern reflected during personal interviews of com-
munity leaders and officials, and criminal justice per-
sonnel; organizational controls established within
criminal justice agencies to direct and guide personnel
performance; and, the description of the tasks performed
by justice personnel.

A third incidental finding was that almost without
exception the agencies visited and observed were plagued

with in—breeding. There was characteristically little

175

contact with the other agencies and sub-systems Of crimi-
nal justice, an almost over—powering resistance to new
ideas, very little experimentation with new techniques,

a parochial view of education and research, and a pre-
occupation with the process of justice rather than justice
as the goal.

As described early in this chapter, a fourth un-
anticipated finding Of this study was the similarity
between the private and public security field and the
police sub-system. Crime control, as defined in this
chapter, includes the tasks performed by both private and
public agencies concerned with protecting private and
public property, persons, institutions, etc., from acts
of crime. The realization of the impact of the private
justice system on the public crime problem and public
security suggests that it might reasonably be included in
the overall criminal justice system and utilize the train-
ing and education facilities available to public personnel.

A fifth incidental finding is the realization of
the diversity of tasks performed by the various agencies
from community to community. This was particularly true
of police agencies. Tasks performed by criminal justice
personnel in some communities were performed by private
enterprise in others. Communities also seemed to vary in
terms of priorities among tasks, with the most noticeable

differences appearing to exist between counties and cities

176

or villages, although no Specific effort was made to
quantify priorities or priority differences in the study.

Agencies could easily be categorized into enforce-
ment oriented departments as compared to service and
security oriented departments. The same distinctions could
be made, though less sharply, for probation and parole
agencies; but it could not be made for the courts and pro-
secution due probably to the size of sample.

These incidental findings to the study, though,
identified as "other findings," were reflected in the
curriculum construction and the criteria formulation. They
also pose some questions worthy of examination for further

research.

CHAPTER V

SUMMARY AND CONCLUSIONS

Introduction

The purpose of this chapter is (l) to summarize the
study's Objectives, the methods used to conduct the study,
and the curriculum and supporting rationale which were the
results or findings of the study, (2) to identify the pri-
mary and secondary conclusions of the study, and (3) to
recognize the implications of the results for future re-
search efforts, the emerging criminal justice discipline,

and the field of adult, continuing and higher education.

Summary of Ohjectives,
Method and Findings

The primary Objective of this study was to develop
a model curriculum to meet the total training and continu-
ing education needs of criminal justice personnel and
agencies serving a large multi-jurisdictional metropolitan
region in the United States. The major criterion estab-
lished for this objective was that the model curriculum be
change-oriented towards deve10ping an integrated criminal

justice "system" in the target metrOpolitan region.

177

 

178

The secondary or interim Objectives were (1) to
identify and define training and continuing education needs
of the criminal justice personnel and agencies to (a) pro-
vide better job performance, (b) enrich the lives of the
personnel as individuals, and (c) improve the system in
terms of goal achievement; and (2) to develop the rationale
and philOSOphy supporting the model curriculum. These
secondary objectives were viewed as instrumental to the
achievement of the primary Objective.

Extensive interviews, participation in planning
committees' deliberations, review Of work records, study
of ordinances and statutes defining duties, reviewing policy
and procedures manuals, analyzing job descriptions and
examining training curricula were the methods used for com-
piling lists Of tasks and task descriptions. From these
lists were develOped "clusters" or groupings of related
tasks. Criteria were developed (these criteria are
reflected in the supporting rationale) to guide this clus-
tering process. The value judgments Of numerous police
executives, judges, prosecutors, correctional administrators
and lay community leaders were reflected in these clustering
criteria.

NO effort was made to quantify needs reflected by
the task descriptions due to the nature and complexity of
the anticipated regional system or organization. Major

attention was given to seeing that all training and continuing

179

education needs were provided for in the curriculum. The
amount Of time per course, seminar and program is expected
to be developed and adjusted based on experimentation,
scheduling considerations, student and agency demands,
course credit, and related factors.

The findings are in the form of a list of curriculum
modules designed to service all of the 240 political sub-
divisions of the seven-county region. The proposed Centers
and the Institute, Operating as an integrated system, will
need to determine what each should offer in terms of student
and agency demand, financial resources, the availability of
facilities and equipment, and the balance of needs through—
out the region as these become apparent in the course Of
the coordination efforts of the Institute.

Equally important to the actual curriculum is the
supporting rationale. Conceptualization of the model was
shaped by the value judgments which produced the task clus—
tering and the curriculum modules. Actually, the curriculum
is generalized to a degree that it would probably fit any
large region with one or more central or urban core cities.
The necessity for this generalization was dictated by the
diversity of the communities in the study area and the
extreme range found in the tasks or jobs comprising the

criminal justice system of the region.

180

Conclusion

 

When this study began some eighteen months ago,
there was no regional training available on a regularly
scheduled basis. Continuing professional education programs
for criminal justice personnel were unheard of except for
a few occasional seminars and special topic Offerings of
the law schools and state bar association. Pre-professional
educational programming was a little more common due to the
numerous educational institutions in the study area. The
region contained the only three law schools in Michigan,
but little concern was given by the law schools to those
subject matter areas dealing with criminal justice. LEEP,
the Law Enforcement Education Program which has provided
significant financial aid and inducement to pre-service
and in-service criminal justice personnel, can be credited
with Sparking the interest in education reflected now in
the number Of criminal justice personnel seeking professional
degrees in the region.

During the period while this study has been under
way, the organizational structure for implementing the
curriculum has been develOped and partially implemented.
This companion project has greatly assisted this investiga-
tor by providing motivation to the persons being interviewed,
by illustrating needs for the curriculum study and, in
part, by providing for the implementation of the proposed

curriculum.

181

The curriculum proposed as the result of this study
can meet the training and continuing education needs of
individuals and agencies which comprise the criminal jus-
tice system in the study region. It is not a panacea to
resolve all training and educational problems, but it is
the starting point for experimentation. An essential
feature Of the prOposed model curriculum is the built-in
provision for change and a continuing effort to keep the
system dynamic. Indicative of the central prominence of
this need for constant change is the recommendation that a
"Vice President for Change" be appointed. He would be
cloaked with the same authority as other key administrative
personnel who direct "foundation" level organizational
functions essential for the life of the organization.

Based on the principle that a curriculum should be
predicated upon or derived from the purpose and function of
the participants, the following terminal objectives were
achieved as study conclusions:

1. The development of a function-oriented classifica-
tion scheme for grouping task performance statements
which identified training and continuing education
needs

2. The identification Of criteria for model curriculum
development for the four Centers and Institute
which constitute the organization for Offering the

learning programs

3. The presentation of supportive rationale for the
criteria and model curriculum

4. The proposal of a model curriculum in the form of
subject modules for programs, courses, seminars,
and other units of the system.

182

Implications

 

Based upon the exploratory nature of the study and

its focus upon the prOposing of a curriculum as its outcome,

the following recommendations or suggestions for additional

inquiry and research are posed:

1.

Additional conceptualization of the emerging discip-
line of criminal justice, perhaps using set theory
relationships, is needed. Such modeling should
seek the validation of fundamental principles which,
when combined with other principles, will encourage
and permit theory construction.

Programs and courses identified with training needs
common to personnel in differing functional areas,
as represented by the four intersect areas in Figure
8, should be the subject of separate curriculum
studies in an effort to increase their impact on
inducing desirable agency change.

This study should be continued, but needs to be
broken down into more manageable segments. Quanti-
fication techniques should be developed to begin to
add an element Of precision not achieved in this
study. Also, experimental designs should be con-
sidered to allow the deve10pment of predictive prin-
ciples and to identify cause and effect relationships.

Due to the high similarity of task descriptions
identified between private security personnel and
police personnel, feasibility studies should be made
to determine whether cross-training or co-training

is desirable. Such a possibility Offers potentially
high economy-of-scale benefits not possible by the
current independent approach. It may also greatly
improve private and public efforts to reduce crime

and increase security of the person, the home, the
business and the community in a more economical manner.

Immediate efforts should be made to determine the
feasibility of combining a liberal arts college ed-
ucation with professional training as a condition
of pre-entrance licensing for employment in career
criminal justice positions. Additional standards
requiring continuous, life-long learning related to
professional plateaus should be explored.

6.

183

A separate study needs to be made of the criteria
prOposed by this study and possibly others not yet
identified. These criteria need to be carefully
examined and evaluated in light of local community
and agency needs. Obviously, the field of criminal
justice is changing rapidly and the criteria guid-
ing curriculum design will need to reflect these
changes.

Additional research efforts should be made to pre-
cisely identify the variation of tasks performed
by the several criminal justice agencies from com-
munity to community. Size of community appears to
be the most significant variable. Other variables
should be examined to determine their relationship
to community organization for criminal justice.

Basic research needs to be done to determine the
impact Of the various media today (especially tele-
vision) on citizen perception of criminal justice
problems and services and Of crime in general. An
additional dimension of such media research would
be an examination of the perception by criminal
justice personnel of their own roles as influenced
by varying exposures to the various media.

SELECTED BIBLIOGRAPHY

SELECTED BIBLIOGRAPHY

I. BOOKS

A. CURRICULUM

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Mager, Robert F. and Kenneth M. Beach, Jr. Developing VOca-
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Manlove, Donald C. and David W. Beggs, III. Flexible

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186

Parker, J. Cecil and Louis J. Rubin. Process as Content:
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Petrequin, Gaynor. Individual Learning thrgugh Modular-
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Searles, John E. A System for Instruction. Scranton, Pa.:
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Venable, Tom C. Philosophical Foundations Of the Curriculum.
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B. EDUCATION, TRAINING AND
CONTINUING EDUCATION

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Bass, Bernard M. and James A. Vaughan. Training in Industry:
The Management of Learning. Belmont, California:
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Bergevin, Paul. A PhilOSOph for Adult Education. New York:
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Beinvenu, Bernard J. New Priorities in Training. New York:
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Blocker, Clyde E. The Two-Year Collegg: A Sopial Synthesis.
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1965.

Brennan, James J. and Donald W. Olmsted. Eglice Work with
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Clark, Burton R. Educating the Expart Society. San Fran-
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Craig, Robert L. and Lester R. Bittel, eds. Trainin and
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Gammage, Allen Z. Police Trainin in the United States.
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Glaser, Robert, ed. Traininngesearch and Education. New
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Academic Power. Washington, D.C.: American Council
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188

Knowles, Malcolm S. Higher Adult Education in the United
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Knowles, Malcolm S. The Modern Practice of Adult Education:
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McGlothlin, William J. The Professional Sghools. New York:
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Saunders, Charles B. Upgrading the Amerigan Police: Educa-
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Shaw, Nathan C., ed. Administration of ContinuingEducation.
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Venn, Grant. Man, Education and Work. Washington, D.C.:
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Watson, Goodwin, ed. Concepts for Social Change. National
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C. CRIMINAL JUSTICE

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Berkley, George E. The Democratic Policeman. Boston:
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189

Blumberg, Abraham S. Criminal Justice. Chicago: Quad-
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Bordua, David J., ed. The Police: Six_Sociological Essays.
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Chapman, Samuel G. The Police Heritage in En land and
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Fosdick, Raymond B. European Police Systems. New York:
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Lee, Captain W. L. Melville. ArHistory_of Police in England.
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Marshall, Geoffrey. Police and Government. London: Methuen
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Quinney, Richard. Crime and Justice in Society. Boston:
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D. SYSTEMS AND CHANGE

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Etzioni, Amitoi, ed. Comparative Analysis of Complex Organ-
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Hartley, Harry J., Edugational Planning-Programmin -
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Havelock, Ronald G. Planning_for Innovation. Ann Arbor:
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Kahn, Robert L., et a1. Organizational Stress: Studies in
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Lippitt, Ronald, et al. The Dynamics of Planned Change.

New York: Harcourt,Brace & World, Inc.,

Rogers, Everett M. Diffusion of Innovations. New York:
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Thompson, Victor A. Bureaucracy and Innovation. University,
Alabama: University of Alabama Press, 1969.

 

E. GENERAL REFERENCES

Andrews, Kenneth R. The Effectiveness of University Manage-
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191

Barker, Sir Ernest. Social Contract: Essays by Locke, Hume,
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Insko, Chester A. Theories of Attitude Change. New York:
Appleton- Century- Crofts, 1967.

 

Katz, Daniel and Robert L. Kahn. The Social Ps cholo of
Organization. New York: John Wiley & Sons, lagg.

 

Klotsche, J. Martin. The Urban University. New York: Harper
& Row, 1966.

Likert, Rensis. The Human Organization: Its Mana ement and
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Maslow, Abraham H. Toward a Psycholo of Bein . Princeton,
New Jersey: D. Van NostrandCCo., I965.

Mosher, Frederick C. Democracyand the Public Service. New
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Parsons, Talcott, ed. Max Weber: The Theory of Social and
Economic Organizations. New Yofk: Oxford University
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Peter, Laurence J. and Raymond Hull. The Peter Principle.
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Roszak, Theodore. The Dissenting Academy. New York: Random
House, 1967.

Schein, Edgar H. Organizational Psychology. Englewood
Cliffs, New Jersey: Prentice-Hall, Inc., 1965.

II . PERIODICALS

Bordua, David J. and Reiss, Albert J., Jr. "Command, Con-
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(July, 1966). pp. 68-76.

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Hodge, Robert W.; Siegel, Paul M.; and Rossi, Peter H.
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Honey, John C. "Education for Public Service: Challenge
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Lefler, Robert A. "Seminars for Appellate Judges," Judica-
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Litwak, E. "Models of Bureaucracy Which Permit Conflicts,"
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O'Connell, Kenneth J. "Continuing Legal Education for the
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193

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Roebuck, Julian and Zelhart, Paul. "The Problem of Educat-
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Rosenberg, Maurice. "Judging Goes to College," American
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III. REPORTS

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194

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195

Murphy, James P. Is the Municipality Liable for Insuf-
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U. S. Government Printing Office.

. Juvenile Delinquencym md Youth Crime. Washington,
D. C.: U. S. Government Printing Office.

196

U.S. Civil Service Commission. A lication of a S stems
Approach to Training: A Case Study. Training Sys-
tems and Technology Series: No. 11, Bureau of Train-
ing. Washington, D.C.: U.S. Government Printing
Office, 1969.

U.S. Department of Labor. Manpower Development and Training
in_Correctional Programs. MDTA Experimentaliand
Experimental and Demonstration Findings No. 3.
WaShington, D.C.: U.S. Government Printing Office,
1968.

University of Georgia. Model In-Service Training Program
for Probation, Parole, and Correctional Personnel.
Office of Law Enforcement Assistance. Washington,
D.C.: U.S. Government Printing Office.

IV. UNPUBLISHED MATERIAL

Bacon, Selden. The Early Development of American Municipal
Police: A Study of the Evolution of Formal Controls
in a Changing Society. Unpublished Ph. D. disserta-
tion, Yale University, New Haven, 1939.

 

Buckner, Hubbard T. The Police: The_Culture of a Social
Control Agency. UnpublishediPh.D. dissertation,
University of'Southern California, 1967.

Dworkin, Leo. A Systems Theory Approach Toward the Recon-
ceptualization of Curriculum. Unpublished Ph. D.
. dissertation, College of Education, Michigan State
University, 1969.

Germann, A. C. The Problem of Police- -Community Relations.
A paper prepared for the Task Force on Law and Law
Enforcement of the National Commission on the
Causes and Prevention of Violence, October, 1968.

Joseph, Kenneth Edward. A Study of the Federal Bureau of
Investigation' 3 Contribution to Law Enforcement
Training and Education in the United States. Un-
published Ph. D. dissertation, Michigan State Uni-
versity, East Lansing, Michigan, 1970.

Peabody, Fred. J. An Analysis of Critical Incidents for
Recently Employed Michigan COOperative ExtenSion
Aggnts with Implications for Trainidg. Unpublished
Ph.D. dissertation, Michiganf State University,
College of Education, East Lansing, Michigan, 1968.

197

Reiss, Albert J., Jr. The Role of the Police in a Changing
Societ . Unpublished paper #14, Center for Research
on Soc1al Organization, Department of Sociology,
University of Michigan, March, 1966.

Rich, Vernon E. Quantitgtive Analysig of Training and
Edgcation: The Case ofithe Police. Unpublished
M.S. thesis, Michigan State University, East Lansing,
Michigan, 1967.

Vaupel, Carl F. A Survey and Analysis of Two Year Police
Science Curricula in the United Stgtes. Unpublished
Ph.D. dissertation, University of South Dakota, 1968.

APPENDIX

199

APPENDIX

MICHIGAN LAW ENFORCEMENT OFFICERS TRAINING COUNCIL

MINIMUM BASIC POLICE TRAINING CURRICULUM

256,Hours

 

I. ADMINISTRATION SECTION

Program Orientation
Classroom Notetaking
Examinations
Examination Review
Coordinator's Time

(graduation, counseling, review, etc.)

10

NU’IHH

[—4

Hours

II. LEGAL SECTION
LAW OF ARREST
CONSTITUTIONAL LAW

1. Introduction
2. Search and Seizure
3. Admissions & Confessions

COURT FUNCTIONS

1. Introduction
2. Prosecuting Attorney
3. District Court

a. Introduction
b. Misdemeanor
c. Felony

d. Warrants

me

LAFJH

12

10

200

III. INVESTIGATIVE SECTION 30 Hours
Criminal Investigation 10

Vice Investigation 2
Narcotics and Dangerous Drugs 4
Crime Scene Search 2
Collection and Preservation of Evidence 2
Interview and Interrogation 3
Fingerprinting and Latent Print

Search Techniques 3
Mock Crime Scene 2
Stolen Motor Vehicles 2

IV. GENERAL POLICE SECTION 113 Hours

 

History and PhilOSOphy of
Law Enforcement
The Juvenile Offender
Firearms Training
Police First Aid
Field Notetaking and Report Writing
Blockade and Roadblock Procedure
Police Communications
Patrol Techniques
Civil Disorders
Mechanics of Arrest and Detention
Domestic Complaints
State Liquor Law Enforcement
Emergency Preparedness--Disaster Control
Stopping Vehicles and Occupant Control
Physical Training and Defensive Tactics 2

HM

l-'
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V. TRAFFIC SUBJECTS 28 Hours

Motor Vehicle Law 8
Driver Licensing 2
D.U.I.L. Enforcement 2
Motor vehicle Accident Investigation 12
Traffic Direction and Control 2
Techniques and Methods of Traffic

Law Enforcement 2

201

VI. SPECIAL SUBJECTS SECTION 16 Hours
Human Relations 8
Police Courtesy and Ethics 4
Handling Abnormal Persons 2
State and Regional Social Services 2
VII. EXTERNAL RELATIONS 5 Hours
Jurisdiction of Federal Law
Enforcement Agencies 2
Michigan Corrections, Parole and
Probation System 3

TOTAL 256

A

M“

A

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