A STUDY OF PLANNENG REQUIREMENTS
FOR SECURITY SiRVICES AT
SPECIAL EVENTS

Thesis for the Degree vi M. S.
MiCHIfiAN STATE UNWERSITY

Nicholas Rudolph Pagliese
1964

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A STUDY OF PLANNING REQUIREMENTS FOR SECURITY SERVICES

AT SPECIAL EVENTS

BY

Nicholas Rudolph Pugliese

AN ABSTRACT OF A THESIS

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

MASTER OF SCIENCE

School of Police Administration and Public Safety

1964

APPROVED f3;4«mmabta «~97 9‘11““)
(Raymond T. GaIvin (Chairman)

\

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~ ‘J'?’£/:’ ;' C:

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(Member)

ABSTRACT

A STUDY OF PLANNING REQUIREMENTS FOR SECURITY SERVICES

AT SPECIAL EVENTS
by Nicholas Rudolph Pugliese

Today more than ever before, the effective per-
formance of police services rests firmly on proper planning.
A police operation can be no better than the plan upon which
it is based. A thorough understanding of planning require-
ments will provide a basis for effective police service.

This study attempts to assist the police adminis-
trator by providing a means of increasing this understanding
of planning requirements for security services at special
events. The study presents: (1) a review of general
planning principles; (2) a discussion of the essential ele-
ments that should be considered in developing a proper plan;
(3) a proposed model planning process which could be advan-
tageously used by police administrators in planning for
security services at special events.

The following hypothesis is established and tested
in the study: The use of an established planning process
will assist the police administrator in proper planning for

security services at special events.

Nicholas Rudolph Pugliese

To test this hypothesis a proposed model planning
process is constructed. Current literature is reviewed and
analyzed to test the theoretical reliability of the model.
Field research is presented of actual special event planning
carried on by various law enforcement agencies. These case
studies provide an empirical test of the proposed model
planning process.

Both the theoretical and empirical tests provide
evidence to justify the reliability of the model. It is
concluded therefore, that the use of an established planning
process will assist the police administrator in proper

planning for security services at special events.

A STUDY OF PLANNING REQUIREMENTS FOR SECURITY SERVICES

AT SPECIAL EVENTS

 

A Thesis
Presented to
the Faculty of the
School of Police Administration and Public Safety

Michigan State University

 

In Partial Fulfillment
of the Requirements for the Degree

Master of Science

 

by
Nicholas Rudolph Pugliese

1964

ACKNOWLEDGMENTS

I should like to express my appreciation to the
Provost Marshal General of the Army and to the United States
Army for providing me the opportunity of continuing my
education while on active duty as a Major in the Military
Police Corps.

To Mr. Raymond T. Galvin, my thesis advisor, my
sincere appreciation for his firm guidance and constant
encouragement in this endeavor.

My special thanks to Lieutenant A. Andrews, Depart-
ment of Public Safety, Michigan State University and
Sergeant M. Logan, Traffic Division, Chicago Police Depart-
ment, for their wholehearted cooperation in providing infor—

mation concerning the planning processes of their departments.

--N.R.P.

TABLE OF CONTENTS

CHAPTER PAGE
I. INTRODUCTION . . . . . . . . . . . . . . . . . l
The Problem . . . . . . . . . . . . . . . 2

Statement of the problem . . . . . . . 2

Methodology . . . . . . . . . . . . . 2

Importance of the study . . . . . . . 3

Limitations of the study . . . . . . . 5

Definitions of Terms Used in the Study . . 5

Organization of the Remainder of the

Thesis . . . . . . . . . . . . . . . . . 7
II. MODEL PLANNING PROCESS . . . . . . . . . . . . 9
III. REVIEW AND ANALYSIS OF THE LITERATURE . . . . 15
Literature on Planning in General . . . . l6
Concept of planning . . . . . . . . . l9
Importance of planning . . . . . . . . 21
Organizing for planning . . . . . . . 23
Procedure for planning . . . . . . . . 27
Essential features of a good plan . . 29
Literature on Police Planning . . . . . . 33
Steps in police planning . . . . . . . 38
Literature on Police Planning for
Special Events . . . . . . . . . . . . . 45

ii

CHAPTER PAGE

Summary and Conclusions . . . . . . . . . 50
Summary . . . . . . . . . . . . . . . 50
Conclusions . . . . . . . . . . . . . 55

IV. CASE STUDIES OF POLICE PLANNING PROCEDURES

FOR SPECIAL EVENTS . . . . . . . . . . . . . 56

Field Research Methodology . . . . . . . . 56

Case Studies . . . . . . . . . . . . . . . 57

Case study #1 . . . . . . . . . . . . 57

Case study #2 . . . . . . . . . . . . 64

Summary and Conclusions . . . . . . . . . 72

Summary . . . . . . . . . . . . . . . 72

Conclusions . . . . . . . . . . . . . 77

V. CONCLUSIONS AND RECOMMENDATIONS . . . . . . . 78
Conclusions . . . . . . . . . . . . . . . 79
Recommendations . . . . . . . . . . . . . 82
BIBLIOGRAPHY . . . . . . . . . . . . . . . . . . . . . 85
APPENDIX A . . . . . . . . . . . . . . . . . . . . . . 88
APPENDIX B . . . . . . . . . . . . . . . . . . . . . . 93

APPENDIX C . . . . . . . . . . . . . . . . . . . . . . 107

APPENDIX D . . . . . . . . . . . . . . . . . . . . . . 110

iii

LIST OF FIGURES

FIGURE PAGE

1. Organization Chart for Chicago Police

Department . . . . . . . . . . . . . . . . . 59
2. Special Event Evaluation Report/Chicago

Police Department . . . . . . . . . . . . . 63
3. Organization Chart for Department of Public

Safety, Michigan State University . . . . . 66
4. Summary of Football Planning Meeting, De-

partment of Public Safety, Michigan

State University . . . . . . . . . . . . . . 69

iv

CHAPTER I
INTRODUCTION

The role of the law enforcement agency in the intri-
cate, highly mobile, rapidly expanding society of today is
ever increasing in scope, complexity, and importance. One
has only to look to New York City to realize the tremendous
challenge of maintaining social order among nearly eight
million people, who own and operate over a million and a
half motor vehicles, and who live, work, and play in an area
of less than 320 square miles.1 Police departments through-
out the length and breadth of our great country face similar
problems. The preservation of law and order is an arduous
task indeed, and one that can only be accomplished through
initiative, creative thinking, and an energetic effort on
the part of police administrators.

In this age of dynamic organization, it is an ac-
cepted postulate that sound management is crucial to suc-
cessful operations in any organization, public or private.

The proof of sound management is Operational effectiveness

 

11963 Statistical Guide for New York City (New York:

Department of Commerce and Industrial Development, Publisher,
1963), Pp. ll, 15, 61, 100.

or the extent to which a desired objective is achieved or an
assigned task accomplished. These desired objectives or
assigned tasks can be accomplished only through effective use
of all resources. The step in the management process de-
signed to insure effective and judicious use of available re-
sources toward an established goal is planning. The ideas
set forth in this study are focused principally on the
planning requirements of police agencies in achieving oper-
ational effectiveness in one type of mission; providing

security services at special events.
I . THE PROBLEM

Statement of the problem. It is the purpose of this
study (1) to review general planning prinéiples; (2) to de-
termine the essential elements that should be considered in
developing a proper plan; (3) to formulate a reliable model
planning process which could be advantageously used by
police administrators in planning for security services at
special events.

The following hypothesis is established and will be
tested in the study: The use of an established planning
process will assist the police administrator in proper

planning for security services at special events.

Methodology. To test the hypothesis a proposed
model planning process was constructed containing basic

principles that would be applicable in some degree to any

planning situation. The theoretical reliability of this
model was then tested by exposure and analysis to current
literature in police planning and related fields. Conclu-
sions were drawn from this analysis and are contained in the
study.

Next an empirical test of the model was effected
through the use of case studies of police agencies at which
actual planning for security services at special events had
been performed. The case studies were conducted through the
use of interviews. This technique made it possible to
obtain both facts and personal opinions from respondents.

It also provided the investigator an opportunity to clarify
hazy issues and evoke elaborative comments where needed. The
results of these case studies were analyzed against the
model, conclusions were drawn from this analysis, and

recommendations were made as deemed appropriate.

Importance of the study. Our law enforcement agen-
cies are charged with the responsibilities of preserving
order, protecting life and property, and enforcing the laws
of the community. These police services require a major
slice of every citizens' annual tax dollar and, accordingly,
continue to be of great interest to the general public.
Conversely, public understanding, confidence, and support
must be fostered and maintained if our police are to ac—
complish their responsibilities. The need for positive

action in the area of public relations is recognized by most

police administrators. However, the problem is well on the
way to being solved when the basic requirement of good public
relations is met. To appear good in the public eye, we must
be good. No police chief or administrator can convince a
community that an inefficiently run department is anything
other than what it is. Good police service does not just
happen, but is the result of a clear understanding of the'
tasks to be done and how best to do them. In short, proper
planning provides the basis for effective police service.

The ability to provide the community with effective
police service will, in turn, further advance police pro-
fessionalization. The legitimate aspirations of law enforce—
ment officers for high status, increased compensation, and
professional recognition will not be achieved without a
planned and determined effort toward this goal. "Planning
is the pathfinder of police professionalization."2

In this thesis an attempt is made to prepare a
study that will assist the police administrator in providing
more effective police services through pr0per planning.

This assistance is offered in the form of a pr0posed model
planning process, theoretically and empirically tested by
the investigator, with recommendations as indicated in the

conclusions of the study.

 

2Spring, 3100, XXXIII (September, 1962), 2-18.

Limitations.gf the study. It is recognized that
planning is an essential part of all police activity and
that, to some degree, planning traverses all levels of police
administration. Many of the concepts reviewed in this study
are applicable to any type or level of police planning. Howe
ever, to avoid unwieldiness, the scope of this study has
been focused on the general area of Operational or tactical
planning and specifically on planning requirements for pro-
viding security services at special events.

No attempt has been made in the study to specify
where in the organizational structure operational planning
should be accomplished. The popular controversy regarding
staff level planning units versus planning at normal command
or line echelons has purposely been avoided. To make this
study applicable to any police administrator, regardless of
the organizational and functional structure of his depart—
ment, and regardless of his position in the organizational
hierarchy, the assumption is made that all police adminis—
trators are responsible for originating plans, for seeing
that plans are implemented by elements of the department,
for controlling the progress of plans until objectives are

met, and for evaluating the effectiveness of executed plans.
II. DEFINITIONS OF TERMS USED IN THE STUDY

To avoid, or at least minimize, confusion due to

semantics, definitions of certain terms used in this study

56
/
are necessary. The definitions are provided to facilitate

understanding and clarity and will be discussed in greater

detail later in the study.

Management. Management consists of getting things
done through the efforts of people. It is the function of
executive leadership. Management entails the marshaling of
manpower, resources and strategy in getting a job done; the
organization and direction of the energies of the insti-
tution; the manipulation of the materials at hand in order
that the organization may survive, prosper, go forward, and
accomplish the work for which it was created.3 In this
study, the management function is the responsibility of the
manager, administrator, and supervisor, and these terms may

be used interchangeably.

Plan. A plan is a predetermined method or scheme of

 

action. It is a proposal to carry out a decision or project.
As a part of the planning process, it represents the organi-
zation's preparation in a specific area to meet a particular

event.4

 

3"Command Management School Reference Notes," (Fort
Belvoir Virginia: U.S. Army Command Management School,
1956), p. 20. (Mimeographed)

4Department of the Army, EM lOl-S Staff Officers
Field Manual — Staff Organization and Procedure (Washington:
Government Printing Office, 1960), p. 64.

 

 

 

KOrganiginq. Organizing is the process of developing
a structural pattern devised to specialize the work at
management by allocating authority, responsibility, and ac—
countability. It involves setting up the structure and de-
veloping procedures. Organizing establishes workable
channels of intragroup communication in order to secure co—
ordination and efficiency in the performance of assigned

tasks.5

Orders. The terms "order," "directive," "instruc-
tion," and "command" are synonymous for all practical pur-
poses and may be used interchangeably in this study. They
are all written or oral communications which convey infor-

. . . 6
mat1on governing act1on.

'Special event. For the purposes of this study, a
special event may be any community affair resulting in an
assemblage of large numbers of people which creates an un-

usual opportunity for disorder, lawlessness, or crime.
III. ORGANIZATION OF THE REMAINDER OF THE THESIS

In support of the hypothesis to be tested, a proposed

model planning process was developed and is presented in

 

5"The Provost Marshal and ACMS" (Fort Gordon,
Georgia: Provost Marshal General School, 1960), p. 6.
(Mimeographed)

6Department of the Army, EM lOl-S Staff Officers
Field Manual - Staff Organization and Procedure, p. 67.

Chapter II. Five basic principles, considered essential for
proper planning, are outlined in the model.

A theoretical approach to the subject of planning is
contained in Chapter III, which consists of a review and
analysis of the available literature. The subject material
is broken down into three parts: planning in general, police
planning, and police planning for special events.

Chapter IV is devoted to a description and evalu-
ation of actual planning processes and procedures employed
by two police agencies. The results of these case studies
are analyzed against the proposed model planning process.

The conclusions and recommendations of the study are

contained in Chapter V.

CHAPTER II
MODEL PLANNING PROCESS

The purpose of this chapter is to present a model
planning process for special events. In order that this
study meets the requirements of scientific research a
specific clarification of its hypothesis is necessary. The
model presented in the following sections serves this pur-
pose. Its formulation and exposition here facilitates an
analysis of the theoretical concepts of the planning process
when compared by the existent literature and tested against
the empirical concepts as indicated in case studies of

actual planning performed by police agencies.

I. Assignment of Planning Responsibility.

A. A specific person or unit within the agency is
assigned the responsibility for over—all coordin-
ation of the preparation of the plan.

1. The assignment of this responsibility is con-
ditioned by the nature of the planning re-
quirement.and the regular job functions of the

person or unit selected.

10

The person or unit assigned this responsibility
is of commensurate status in the organizational
hierarchy as those responsible for executing
the plan.

This responsibility is assigned in a formal
manner, providing the planner with written

authorization for preparing the plan.

II. Analysis of the Planning Problem.

A.

The mission or objective of the operation is

analyzed to determine planning tasks.

1.

2.

3.

The number of specific tasks to be completed
is established.

The complexity of these tasks is determined.
A priority or sequence is established for

performing these tasks.

Planning assignments are made, based on the number,

complexity, and priority of required planning

tasks.

1.

Work to be accomplished is divided in a mean-
ingful and equitable manner.

Planning tasks are delegated commensurate with
the complexity of the task and the specialized
assistance available.

All required planning tasks are assigned to a
specific person and that person knows what his

assigned planning task is.

C.

11

4. Planning tasks are assigned so as to avoid
overlap or duplicity of effort.
A schedule is established for completion times of

all planning tasks.

III. Selection of a Course of Action.

A.

The situation is analyzed and courses of action
that will accomplish the objective of the oper-
ation are formulated.

l. A determination, collection, and analysis is
made of all facts bearing on the situation
which will influence the choice of a course of
action. In the absence of facts logical as-
sumptions are used.

2. Significant difficulties or problem areas
which are anticipated and which could adversely
affect the accomplishment of the objective are
determined and listed.

3. All feasible courses of action which will ac-
complish the objective if successful are deter-
mined and listed.

Each course of action listed is analyzed against

each significant difficulty listed and the

probable outcome determined.

1. The anticipated significant difficulties which

will have an approximately equal effect on all

12

courses of action formulated are determined
and listed.

2. Each course of action listed is analyzed
against each remaining anticipated significant
difficulty to determine strengths and weak-
nesses inherent in each course of action.

C. Courses of action are compared, in terms of signifi-
cant advantages and disadvantages which emerged
during analysis, and the course of action which
promises to be most successful in accomplishing
the objective is selected.

D. The course of action selected is translated into a
complete statement, showing who, what, when, where,

how, and why as apprOpriate.l

IV. Implementation of the Plan.

A. The person or unit having the responsibility for
over—all coordination of the preparation of the
plan collects and integrates the various parts of
the plan into a unified, coordinated scheme of
operation.

B. A tentative plan is prepared outlining the situ-
ation, mission or objectives, broad concept of

operations, and general considerations.

 

1The procedure used in this section is based on the
military "Estimate of the Situation," as found in FM 101-5
and other military publications.

13

C. The tentative plan is circulated and formal written
concurrence is obtained from all interested
agencies.

D. The tentative plan is submitted to a designated
authority for approval.

E. After approval of the tentative plan, a final plan
is prepared which provides the necessary resources
and directions required in the execution of the
plan. Distribution is made to all interested

agencies.

V. Evaluation of the plan.

A. A specific person or unit within the agency is as-
signed the responsibility for evaluating the ef-
fectiveness of the plan.

B. Procedures are established for evaluating the ef-
fectiveness of the plan.

1. Provisions of the plan require Operating units
to submit reports containing information es-
sential for evaluation.

2. Information relating to the effectiveness of
the plan is collected, analyzed, and made

available for future planning.

The design of the model outlined in the preceding
sections is intended to facilitate its use regardless of

variations in size of law enforcement agencies or differences

14

in scope of security services to be provided. The principles
of planning apply equally to all size agencies and to any
planning situation. The review and analysis of planning
literature presented in the following chapter will clarify

this postulate.

CHAPTER III
REVIEW AND ANALYSIS OF THE LITERATURE

While there is a wealth of published material
available pertaining to planning as a concept of business
management and some government publications reference
military planning, only limited material has been published
dealing with police planning and even less that is directly
devoted to police planning for special events. However,
since much of the planning theory and many of the planning
techniques advocated for use in business or military organi-
zations are also applicable to law enforcement agencies,
publications from these fields were screened for pertinency
and material applicable to police operational planning has
been used as a partial basis for this study.

Therefore, this review is subdivided into three
major source areas: literature on planning in general,
literature on police planning, and literature on police

planning for special events.

15

16
I. LITERATURE ON PLANNING IN GENERAL

One of the most detailed discussions of planning,
as related to business enterprises, is presented by Preston
P. LeBreton and Dale A. Henning, professors at the Univer—
sity of Washington (Seattle), in their text, Planning
Theory.l Although it is a book on theory, it contains sig-
nificant practical applications. Part I, "Setting the
Foundation for a Theory of Planning," was found to be the
most pertinent to the area encompassed by this study.

A definition of planning is given and its importance
described. The various parts of a plan are then presented
and their importance established. The concluding portion
contains a description and evaluation of a recommended
planning procedure. The remainder of Part I deals in its
entirety with the dimensions of a plan.

Although the book treats planning done at various
levels of business enterprises, many of the basic principles
and concepts stated are equally valid in law enforcement
agencies.

Two chapters in the text, Long-Range Planning for
Management, edited by David W. Ewing, Associate Editor,

Harvard Business Review, were considered relevant to this

 

1Preston P. LeBreton and Dale A. Henning, Planning
Theory (Englewood Cliffs, New Jersey: Prentice-Hall, Inc.,
1961).

17

study.2 The first, written by Harold Koontz and Cyril
O'Donnell, professors at the School of Business Adminis-
tration, University of California at Los Angeles, concerns
"The Nature and Purpose of Planning."

They begin by emphasizing the role of planning in
management as follows:

While no manager can successfully accomplish his task
unless he does all the functions well, it is nonethe-
less true that control is peculiarly dependent upon
planning. Since control is the function of making

sure that events conform to plans, no manager can con-
trol who has not planned. No one can ascertain whether
he is on the correct path unless he has determined
where he wishes to go.

Other pertinent discussions concern the "concept of
planning," the "importance of planning,“ "steps involved in
planning," and "planning within the organization structure."

The second relevant chapter of the text is taken
from the business classic, General and Industrigl Management,
by the late French industrialist Henri Fagol. Here he
describes the "general features of a good plan of action."
Unity, continuity, flexibility, and precision are considered
the broad features of a good plan of action and are ex-
pounded by business illustrations. In an effort to illus-
trate how experienced managers go about drawing up their

plans, the author sets out the method which has long been

followed in a great mining and metallurgical concern.

 

2David W. Ewing, (ed.), Long-Range Planning for
Management (New York: Harper and Row, Publishers, 1958)..

31bid., p. 2.

18

A second text by LeBreton, A Guide for Prgper Manage-
ment Planning for Small Business, was published by the
College of Business Administration, Louisiana State Uni—
versity in April 1963.4 One of the objectives of this study,
prepared under a Small Business Administration grant, is to
"provide a useful framework for acquiring a better under-
standing of the important executive function of planning."

The chapter entitled "The Planning Concept," is most
relevant to a police situation. Here also, the various
dimensions of a plan and their influence upon the planning
process are discussed. A recommended planning procedure,
extending from a determination of the need for a plan through
the preparation of a plan to the final approval of a plan,
is presented.

Other business management publications cited had
little over-all applicability to the study at hand and will
not be reviewed individually.

The major military publication used as a source for
this study is Department of the Army's Field Manual 101-5,
Staff Officers Field Manual Staff Organization and

5 . .
Procedure. S1nce many law enforcement agenc1es are

 

4Preston P. LeBreton, A Guide for Prgper Management
Planning for Small Business (Baton Rouge, Louisiana:
Louisiana State University, 1963).

5Department of the Army, EM lOl-S Staff Officers
.Eield Manual - Staff Organization and Procedure (Washington:
Government Printing Office, 1960).

19

organized and operate along military lines, much of the in—
formation in this manual on staff doctrine, organization,
and procedures is applicable to the police field.

Parts of the manual deal specifically with plans and
planning. Material discussed in the manual includes defi-
nitions, planning sequence, organization for planning,
planning procedures and techniques. Later paragraphs dis-

cuss the form and content of plans.

Concept 2; Planning

A crucial requirement for every administrator is to
be clear in his own mind about what planning is and isn't.
"The magic word has been used so loosely and has been ap-
plied to such a hodge podge of activities that it needs to
be rescued from the semantic wilderness."6

webster's New Collegiate Dictionary defines planning
as "devising or projecting a method, scheme, or course of
action, procedure, or assignment," which "always implies
mental formulation."

Planning is defined by Simon, Smithburg, and Thompson
in their book, Public AdministrgtiOn, as "rational, adaptive

thought applied to the future and to matters over which the

 

6Louis Cassels and Raymond L. Randall, "6 Steps to
Better Planning," Nation's Business, 49:42, August, 1961.

20

planners, or the administrative organizations with which
they are associated, have some degree of control.7

V. A. Leonard, of the Department of Police Science
and Administration, Washington State College, states that
planning is "the working out in broad outline of the things
that need to be done and the methods for doing them in
order to accomplish the purpose set for the enterprise."8

Planning in the administrative services of the mili—
tary organization is defined as "the process of developing
objectives based on the mission and selecting the best
course of action to accomplish these objectives."9

The concept that is found in all of these defi-
nitions, regardless of whether the orientation is academic,
business, police, or military, is that involving choice or
selection from among alternatives. Billy E. Goetz aptly ex-
pressed this concept when he said, "Planning is fundamentally
choosing," and ta planning problem arises when an alternative

10

course of action is discovered." If there were no alter-

natives in objectives, policies, or procedures, there would

 

7Herbert A. Simon, Donald W. Smithburg, and Victor
A. Thompson, Public Administration (New York: Alfred A.
Knopf, Inc., 1962), pp. 423-424.

8V. A. Leonard, Police Organization and Management
(Brooklyn: The Foundation Press, Inc., 1951), p. 164.

9"The Provost Marshal and ACMS," gp. cit., p. 6.

10Billy E. Goetz, Management Planning and Control
(New York: McGraw—Hill Book Company, Inc., 1949), p. 2.

21

be little requirement for planning. However, in practice
there are probably few, if any, problems for which an
alternative course of action does not exist.11
To a large extent, the job of planning is to make
things happen that would not otherwise happen. Although the
exact outcome of an operation can seldom be made to happen,
as factors external to the organization or otherwise beyond
its control may interfere with the best—laid plans, events,
without planning, would be necessarily left to chance.
Planning is thus an intellectual or thinking process (mental
formulation). It involves the conscious determination of
courses of action (alternatives) and decision based on
purpose, facts and considered estimates (selection or

decision making).12

Importance g: Planning

 

The material already presented gives a general indi-
cation of the inherent importance of planning in the oper-
ations of any organization. However, there are certain
specific values in planning that warrant emphasis. Koontz
and O'Donnell list the following four values in their
chapter, "The Nature and Purpose of Planning."13

Planning is a necessity because it offers protection

against uncertainty and change. Future events are not

 

 

lleing,_gp. cit., p. 22.

lzIbid.

13Ibid., p. 21.

22

absolutely predictable. Unforeseen circumstances or changes
in conditions can have a marked effect on the achievement of
established goals. Even where the future bears a high degree
of certainty, planning is necessary. There is always the
necessity of selecting the best way of accomplishing the
objective from the many alternatives. When the decision as
to a course of action is made, it is necessary to lay out
plans so that all sections of the organization will con-
tribute toward the job to be done.14

Planning tends to focus attention 9g the objectives
of the organization. Goetz states it this way:

Plans focus action on purpose. They can forecast
actions which tend toward the ultimate objective of
economic efficiency, which tend away, which will
likely offset one another, and which are merely
irrelevant. Managerial planning attempts to achieve
a consistent, coordinated structure of operations
focused on desired ends. Without plans, action must
become merely random activity producing nothing but
chaos.

A third value of planning is that it assures an
economic use g; resources. Random, inconsistent, and un-
coordinated activity is sure to result in high and un-
necessary expenditure of resources. With proper planning

this waste can be avoided. "Even a poor plan is better than

no plan at all. . . . To make poor decisions is

 

l4Ibid., pp. 30-31.

15Goetz,‘9_p. cit., p. 63.

23

understandable, but not to realize why a person made them or

where he intended to go by making them is unforgivable."l6

 

Planning is essential pg control. This can best be
illustrated by comparing planning to navigation. The navi-
gator lays out a plan and sets a course toward his goal.
Thereafter, he constantly rechecks his position as he pro-
ceeds toward his goal, adjusting his plan as errors or un-
foreseen circumstances effect his progress toward his
established goal. This constant rechecking is comparable to
the management function of control. Just as the navigator
cannot check his route unless he has a plan against which to
measure it, so an administrator cannot check on the ac-
complishments of his organization unless he has projected a
definite course of action.17

In summary we can say that adequate and practical
plans are essential for successful execution of any oper-
ation. Proper planning permits a detailed and systematic

examination of all factors involved in the projected

operation.

Organizing for Planning

Planning, like everything else the organization does
or fails to do, is the ultimate responsibility of the chief

or top administrator. Normally, however, the chief will

 

16Ewing,‘gp, cit., p. 34.

 

l7Ibid.

24

assign the responsibility for the preparation of plans to
subordinates. The type of planning required and the basic
organizational structure of the department will both have an
effect on the assignment of specific planning functions.
There are any number of ways the chief can accomplish
planning requirements. Where in the departmental organi-
zation this responsibility is delegated will depend on the
situation at hand and the personal views of the chief. Some
of the fundamental methods of accomplishing the planning

missions are discussed below.

Use the existing line organization. Here the

 

planning responsibility is delegated to the performing unit
or those that will execute the plan. When the chief dele—
gates planning duties to a line subordinate, that line
subordinate takes on such planning activities in addition to
all of his other duties. Consequently, planning sometimes
suffers because of the pressure of other duties. However,
under these circumstances planning is realistic. It takes
place in a practical setting, and it is done by operating
administrators. "It has none of the shortcomings of 'ivory-

tower' thinking,"18

Create g_permanent planning section gg unit. In

 

this method, an agency is created to assist the chief in all

long range planning for the department. Other agencies

 

18LeBreton and Henning, pp, cit., p. 183.

25

within the department are relieved of all but short-range
planning and can concentrate their efforts on current oper-
ations. This method is useful when current operations are
intense, leaving operating personnel little time for planning,
or when current and future operations are not closely
connected. Such planning units usually require an augmen-
tation of personnel in the headquarters and additional
facilities.19
Planning by advisory specialists or units has other
shortcomings. The personnel who do the planning in this
situation are not those who carry out the plans. This can
result in unrealistic or impractical plans. Also, the ad-
vantages of specialization are often lost, because the staff
is not left free to concentrate on planning. The assignment
of non-planning duties can get so voluminous and time-
consuming on the planning staff as to completely vitiate any

advantages derived from specialization.20

Employ g planning committee. In this method sub-
ordinate administrators, line, staff, or both, are assembled

to resolve a specific problem or to develop a specific

21 . . . .
plan. When a plan 1nvolves the act1v1t1es of more than

 

19Department of the Army, EM 101—5 Staff Officers

Fielg Manual Staff Organization and Procedure, p. 61.

20LeBreton and Henning, loc. cit.

21Department of the Army,ԤM lOl-S Staff Officers

Field Manual Staff Organization and Procedure, p. 61.

26

one department, there is the possibility that a committee
will be needed at some stage of the planning process. The
committee, therefore, should be set up to fit the specific
needs of a given plan. This will result in some fairly
permanent committees being established, while others will be
of a temporary nature. In attempting to determine the proper
representation on a committee, the chief should be influenced

by the needs of the plan.22

The selection of persons most
directly affected has many advantages. To get the most use
out of committees, their responsibility should, normally, be
purely advisory, the size, if possible, should number from 3
to 7 persons, and an advance agenda should be distributed
for prior study and preparation.23 Committees provide a
wide range of experience and intelligence to assist the chief
in reaching decisions, but are weak in making decisions or
implementing them. Committees may also tend to: help de—
velop team spirit; broaden individual experience and know-
ledge; cover all facets of problems; gauge reactions to
planned changes.24

As stated previously, it is not the purpose of this

study to specify where in the organizational hierarchy plan-

ning should be accomplished. The important consideration is

 

22LeBretonLgp. cit., p. 30.

23"Command Management School Reference Notes," pp,
cit., p. 6.

24

Ibid.

27

that proper planning is accomplished. Failure to discriminate
between the importance of procedures in attaining an ob-
jective and the actual attainment of that objective under—
lies a long series of misunderstandings in the field of

management. AWE sometimes FORFEIT actual accomplishment for
"25

 

finesse lg method gf execution.
The following illustrates this postulate:

A recruit pushing down the follower on an M1 rifle
caught his thumb between the receding bolt and chamber.
A sergeant investigated the disturbance and decided that
the man should go to the dispensary. Upon arrival at
the dispensary, Pvt. Bilko was confrOnted with two sets
of swinging doors, one labeled "Diseased" and the other
"Injuries." He looked at his thumb, decided that he

had an injury, and entered the right door where he was
confronted by two more doors--"Injuries to the Body" —
"Injuries to the Appendages." He cautiously entered the
right door where he saw two more doors--"Injuries to
Lower Appendages" - "Injuries to Upper Appendages."
There was no doubt about this one, but the next set of
doors again required a decision--"Major Injuries" -
“Minor Injuries." His thumb was hurting like the devil,
but he decided that it was only a minor injury, so again
the right door. He passed hurriedly through the door
and was confronted with open air and sunshine. He re-
ported back to his sergeant who asked, “How did you make
out?" Bilko said, "I can't say much for the treatment,
but their organization is terrific!"26

Procedure for Planning

A plan can be so perfect that its success may be
practically a matter of automatic application of its pro-

visions or, so imperfect that the chance of accomplishing

 

25"The Provost Marshal and ACMS," gp. cit., p. l.

261bid.

28

its objective, along the course provided, is extremely re-
mote. Like good police service, good planning does not just
happen. It is not an automatic process.27 Most publi—
cations dealing with planning contain a recommended sequence
of steps or procedure for planning. Some are more compre-
hensive than others.

LeBreton and Henning list the following sequence of

fourteen steps as a possible procedure in developing a

plan.28

1. Becoming aware of a possible need for formulating a
plan.

2. Formulating a precise statement of the objective of
the plan to be prepared.

3. Preparing a broad outline of the proposal.

4. Obtaining approval of the pr0posal.

5. Organizing a planning staff and assigning '
responsibility.

6. Determining the specific outline of the plan.

7. Establishing contact with all cooperating units.

8. Obtaining necessary data.

9. Evaluating data.

10. Formulating tentative conclusions and preparing
tentative plans.

11. Testing components of tentative plans.

12. Preparing the final plan.

13. Testing the plan.

14. Obtaining approval of the plan.

Ewing presents a much shorter list in outlining the
steps he feels are involved in major planning.29
Establishment of Objectives

Establishment of Planning Premises
Search and Examination of Alternate Courses of Action

 

27LeBreton and Henning, 9p, cit., p. 14.

28Ibid.

29Ewing,_<_>_p. cit., Pp. 43—48.

29

Evaluation of Alternative Courses of Action
Selection of a Course or Courses of Action
Formulation of Necessary Derivative Plans

LeBreton, in his book, A Guide for Proper Management

Planning for Small Business, presents an abbreviated list of

eight steps.30

Finding That There is a Need for Preparing a Plan
Establishing an Objective for the Plan

Organizing and Staffing for Planning

Acquiring the Necessary Data for Planning
Evaluating the Data and Arriving at a Conclusion
Testing the Plan

Implementing the Plan

Controlling the Plan

Not all of these steps or procedures are applicable
in their entirety to the type planning with which this study
is concerned. An analysis of the steps in a police process

will be presented in Section II of this chapter.

Essential Features gf_g Good Plan

 

This section is devoted to the evaluation of a plan
prior to its implementation. How are good plans to be
singled out from among the others? Experience is the only
thing that finally determines the true value of a plan, and
even then the manner of its application must be considered.
Nevertheless, there are certain broad characteristics of a
good plan on which general agreement may be reached without

waiting for the verdict of experience.31 Effective plans

 

3OLeBretonhgp. cit., PP. 1-5.

 

31Ewing,.gp. cit., p. 52.

30

should possess the following characteristics: (1) unity of
purpose, (2) simplicity and clarity, (3) completeness and
continuity, (4) capability and flexibility, and (5) accuracy

and adequacy.

Unity 2f Purpose. A plan represents preparation in
a specific area to meet a particular event. An essential
element of a plan is that it must provide a definite course
of action and a method for execution. The course of action
is develOped to accomplish a specific mission or objective.32
For unity of purpose, all activity outlined in the plan must
adhere to a single main idea. There must be an over-all
purpose toward which all resources involved in the operation

are directed.

Simplicity and clarity. To facilitate proper exe-
cution, a plan should be simple and clear. All elements
should be eliminated which are not essential to successful
action. All aspects of the plan must be reduced to their
simplest forms. To assure that instructions, orders, or
directions convey the writer's intent, they must be clear.

All possibilities for misunderstanding should be eliminated.33

Completeness and continuity. A.complete plan would

be one which includes all the necessary components for its

 

32Department of the Army, EM 101-5 Staff Officers
Field Manual Staff Organization and Procedure, p. 64.

‘33Ibid.

31

expeditious implementation.34

Such factors as organization,
wherein relationships are clearly established and responsi-
bilities fixed, must be provided for in the plan. Another
important consideration is the full use of existing re-
sources. A complete plan provides for the use of all re-
sources organic to the department or available outside the
department, which should be used.35

For a plan to have continuity, it must provide an
organization, personnel, material, and procedures for the
full period of the contemplated operation.36 "The guiding

action of the plan must be continuous."37

Capability and flexibility. For a plan to have
maximum value to a police agency, it should reflect the best
possible guides administrators can develop to maximize the

38 A plan has capability

accomplishment of its objectives.
if, when properly implemented, it accomplishes the objective
of the planning. A plan that offers no possibility of
achieving the desired objective is of no value.

As noted previously, there are many elements affect-

ing the success of plans that are uncertain or subject to

 

34LeBreton and Henning, gp. cit., p. 39.

35Department of the Army, EM 101-5 Staff Officers
Field Manual §faff Organization gnd Procedure, p. 64.

36Ibid.

37Ewing,.gp. cit., p. 53.

38LeBreton and Henning, gp. cit., p. 40.

32

change. If the administrator has developed a plan with
flexibility, he has left room for adjustment to changes in
operating conditions. Alternate courses of action may be
stipulated, where necessary, in the event a change is

needed.39

Accuracy and adequacy. Another good characteristic
to develop in the plan is to have as much accuracy as is
compatible with the unknown factors bearing on the outcome
of the operation.40 The plan should be free from factual
and procedural errors. All pertinent data must be considered.
All data used must be accurate. Assumptions must be reduced
to a minimum.41 When the unknown factor is heavily relied
on, there can be no preciseness in the plan, and the oper-
ation becomes one of venture.

All data and assumptions used by the planner may be
accurate, but the plan may fail because it has internal weak-
nesses. Occasionally, vital elements are missing from a
plan, causing a breakdown during execution. An example of
this would be failing to specifically assign responsibility

for certain functions, resulting in having nothing done or

duplicating functions. It is important to discover

 

39Department of the Army, FM lOl-S Staff Officers
field Manual Staff Organization and Procedure, p. 64.

4OEwing, loc. cit.

41Department of the Army, EM 101-5 Staff Officers
.fie1_ Manual Staff Organfzation and Procedure, p. 64.

33

inaccuracies or inadequacies as quickly as possible and in—
corporate necessary changes, so that the plan will function

successfully.42

II. LITERATURE ON POLICE PLANNING

O. W. Wilson, presently Superintendent of Police in
Chicago, Illinois, has written the most comprehensive text
dealing with police planning that could be found. In his

book, Police Planning, Wilson states, "It is the purpose of

 

this book to analyze the planning process in a police depart-

ment and to discuss the tasks of planning within the police

field without regard to their scope."43

Wilson begins by defining planning and proceeds to
the values of a plan. These are:

(1) It implements policy and clarifies it by defining
more precisely an immediate objective or purpose
and outlining what is to be done to achieve it. A
failure to plan signifies a lack of policy, or at
least a lack of general understanding of policy by
members of the organization.

(2) A plan serves as a guide or reference in both train-
ing and performance. It simplifies the direction of
the members of the group, facilitates the coordin-
ation of their efforts, and places responsibility.
In terms of tasks to be performed and effort re-
quired in their accomplishment, coordination is
achieved more readily when the duties of each com—
ponent member or unit are outlined in the plan and
when the relationships are thus officially es-
tablished. A group operates as a mob in the
absence of consistent direction and coordination;

 

42LeBreton and Henning, gp. cit., p. 56.

43O. W. Wilson, Police Planning (Springfield,
Illinois: Charles C. Thomas Publisher, 1952).

34

through planning, chaos, confusion, and friction are
replaced by system, order, and teamwork.

(3) The planning process gives continued attention to
the improvement of practices and procedures. Con-
sistently uniform and superior methods are thus
assured.

(4) A plan enables a check on accomplishment. Control
is thereby effected.

(5) Wise planning assures the most effective and economi-
cal use of resources in the accomplishment of the
purpose of the organization.44

In a section on "Organization for Planning," Wilson
discusses the duties of a planning officer or unit and the
use of planning committees composed of operating personnel
to consider special problems. Further in the chapter, these
five basic steps in planning are outlined and elaborated
upon:

(1) The need for the plan must be recognized.

(2) A statement of the objective must be formulated.

(3) Relevant data must be gathered and analyzed.

(4) The details of the plan must be developed.

(5) Concurrences must be obtained from organizational
units whose operations may be affected by the pro-
posed plan.45
He concludes with a discussion on activating the

plan and the authority and responsibility of the chief in
accomplishing the police purpose.

John P. Kenney, in his text, Police Management

Planning, presents a detailed discussion of planning by

police agencies.46 The initial part of the book deals with

 

Ibid., p. 4.

 

Ibid., p. 10.

 

46John P. Kenney, Police Management Planning
(Springfield, Illinois: Charles C. Thomas Publisher, 1959).

35

the nature of police activities and their relationship to
planning.

The discussion of the "planning process,“ is most
relevant to this study. Here, Kenney lists the following as

identifiable characteristics of effective plans:

1. Clearly defined objectives or goals.

2. Simplicity, directness, and clarity.

3. Flexibility.

4. Possibility of achieVement.

5. Provisions for standards of Operation.

6. Economy in terms of resources needed for implemen-
tation

7. Anticipatable effect on future operations.

8. Are necessities.

Kenney then recommends the eight steps listed as,
"an orderly means for the development of plans, be they

large or small, long-range or short-range. These provide a

framework for the consideration of all aspects of planning."48

"Frame of reference."
Clarifying the problem.
Collecting all pertinent facts.
Analyzing the facts.

Developing alternative plans.
Selecting the most appropriate alternative.
"Selling" the plan.

Arranging for execution of the plan.
Evaluating the effectiveness of the plan.

49

KOCDQO‘U'iwal—i

The author discusses each of these steps and concludes with
sections on "Who Plans," and "Community Factors Affecting

Police Planning."

 

47Ibid., p. 18.

48Ibid., p. 21.

491bid., pp. 21-23.

36

In Parker 2g Police, a compilation of the City of
Los Angeles Police Chief William H. Parker's addresses and
articles edited by O. W. Wilson, Chapter Five, entitled,
“Parker on Police Planning," is composed of two lectures on
"Practical Aspects of Police Planning."50
Parker starts his first lecture with several defi-
nitions of planning, Wilson's included, and moves on to
discuss the importance and limitations of planning in police
administration. Parker feels that planning is important be—
cause it provides police administrators with more facts. He
says:
The scientific approach to the problems of police ad-
ministration is based squarely upon planning and re-
search. The personal judgment of competent police can
never be eliminated as a key factor in effective .
police administration, but that personal judgment must, 1n
all cases, depend upon knowledge. Intuition, 'feel,'
and 'hunch' are not magical qualities-—rather, they im-
ply the ability to assess a situation accurately and
make effective decisions. The more facts at hand, the
less margin for error. Effective police planning places
more facts at the disposal of the police administrator.
He points out California's tremendous traffic con—
gestion problem as an illustration of the general failure
of traffic planning. In a section on planning units, the

objectives, organization and functions of the Los Angeles

Police Department's Planning and Research Division are

 

50O. W. Wilson, Parker 2g Police (Springfield,
Illinois: Charles C. Thomas Publisher, 1957).

511bid., pp. 75-76.

37

outlined. Sections on "Organizational Planning" and "Man-
power Planning" conclude the first lecture.

Parker opens his second lecture with a section on
"Operational Planning," into which he lumps program planning,
procedural planning, and tactical planning. The alcoholic
rehabilitation program carried on by the Los Angeles Police
Department is used as an example of program planning. Pro-
cedural and tactical planning are discussed and examples
illustrating the usefulness of the Planning and Research
Unit in these types of planning are cited. Sections on
"Fiscal Planning" and "Physical Planning" complete the
lecture. Parker concludes that, "police service does not
stand still; it either improves or deteriorates; if it is to

52

improve, there must be careful planning."

Department of the Army's Field Manual fgfifg Military

 

Police Operations contains some basic material on police
planning.53 The manual discusses the concept of planning,
basic steps in preparing a plan and operation orders.
Chapter 4, "Other Military Police Operations," contains a
section on "special events" which includes instructions for
handling assemblies and parades. Sections are also in—
cluded on "civil disturbances and emergencies" and "joint

police operations." The material presented in this manual,

 

521bid., p. 95.

53Department of the Army, EM fgfifg Military Police
Operations (washington: Government Printing Office, 1955).

38

although applicable to civilian police operations, is rather
general in nature and lacks the detail necessary for it to be

of real value to the police planner.

Steps lg Police Planning

 

The role of the police administrator is that of
directing the organization in a manner that will provide
the most efficient service for the least expenditure of
resources. "Successful administration depends to a large
extent upon comprehensive planning, which is a necessary
element and a fundamental function of administration."54
The size or complexity of the law enforcement organization
are not the factors which determine the need or extent of
planning. Every police organization throughout the nation
must engage in the administrative function of planning, re-
gardless of the scope of their assigned mission.55

We have said that planning is an essential part of
all police operations and that planning traverses all levels
of police administration. There is little doubt however,
that much police planning is ineffective. Chief Parker
feels that much of this ineffectiveness is due to the

failure of police planners to appreciate the difficulties of

the problems that they set for themselves. He says,

 

54Municipal Police Administration (Chicago: The
International City Managers' Association, 1954), p. 107.

SSIbid.

39

"Overconfidence in planning is a common failing--and usually
due to a lack of definition of goal, a misunderstanding of
obstacles, misuse of methods and means, and inability to ac-
curately predict the future."56
This section is devoted to an analysis of the

various steps comprising the basic or general planning pro—

cedures outlined in the pertinent literature.

Recognizing gf the need for preparing the plan.
This first step is critical, for if the need for a plan is
not recognized, planning obviously does not take place. It
is important, therefore, that the police be alert to dis-
cover coming events that may impose unusual burdens on them
or pose a threat to the maintenance of law and order in the
community. Events that result in the congregation of large
numbers of persons deserve the development of plans that will
facilitate the protection and orderly dispersal of the
crowds.57

Needs are also discovered through breakdowns in
procedures or failures in the accomplishment of objectives.
A situation which illustrates this point occurred at the
1960 Jazz Festival at Newport, Rhode Island, when thousands

of beer-drinking, carousing college-age youths descended up—

on the city. The Festival ended as riots broke out when

 

56O. W. Wilson, Parker gg Police, p. 76.

57O. W. Wilson, Police Planning, p. 10.

 

40

police and mobs of young people clashed and the Governor
sent in State Police and National Guard units to help re-
store order. Recognizing the need for an effective plan in
handling the event the following year, the Chief of Police
took aggressive action in preparing such a plan, and the
result was an absence of chaos, destruction, and rioting
during the 1961 Jazz Festival.58
It is much more desirable, however, to discover
weaknesses or deficiencies in a procedure before they cause
a failure of the operation. This may sometimes be done by a
critical analysis of the plan or of relevant factual data,
resulting in verification of an apparent need.59 Every
facet of an operation or procedure should be studied with
the searching question "why" as the spearhead of analysis,
understanding, and evaluation. "No tradition in law en—
forcement is so sacred that it should be sheltered from
piercing inquiry and intellectual penetration. The answer
that 'it was always done that way' is never a satisfactory
response, and is likely to be symptomatic of the urgent need

for a new approach."60

Formulating g statement 2f the objective. The

 

second step in planning is the formulation of a precise

 

58Joseph A. Radice, "Possible Rioting at Jazz
Festiva1.Averted by Police," FBI Law Enforcement Bulletin
7, June, 1962.

59O. W. Wilson, Police Planning, p. 10.

6OSpring 3100, 22. cit., p. 4.

41

statement of the objective or mission. Identifying and
understanding the problem is an aid to clarity in thinking.
It tells us what is to be accomplished by the plan.
Reference to a precise statement of the objective lessens
the hazard of straying from the true purpose of the oper-
ation and assists in gathering and analyzing relevant data,
rejecting non-essential facts, and developing the details
of a plan.61

The statement of the objective should include a
general reference as to how the objective is to be ac-
complished. The nature of the plan will determine just how
specific one can get at this stage of the planning process.
However, the statement of the objective should be specific
enough to permit the planner to satisfy the needs of the

plan.62

Establishing planning premises. The next step in
the planning process is the establishment of planning
premises. "These are forecast data of a factual nature and
basic policies expected to be applicable for the future.
Premises, then, are planning assumptions."6

An assumption can be defined as a supposition on the

current or future situation, assumed to be true in the

 

61O. W. Wilson, Police Planning, p. 11.

62LeBreton, 9p, cit., p. 2.

63Ewing,.gp. cit., p. 44.

42

absence of positive proof. When the supposition is confirmed
by positive proof, the assumption becomes a fact. As ad-
ditional information becomes available, assumptions may
change, requiring corresponding changes in the plan being
evolved. Assumptions are often used, in the absence of
facts, to state conditions that must exist for a specific
plan to be used. Different sets of assumptions are used to
generate alternate plans to cover various probable

64
occurrences.

Establishing contact with cooperating agencies. When
the plan being developed is of such scope that assistance
from outside the planning agency is required, it is often
desirable and at times necessary, to make official contact
with responsible persons in each participating unit early in
the planning process. The assistance required from outside
the planning agency could range from actual participation in
implementing the plan to providing data required for the
preparation of the plan. When it is a matter of obtaining
data, personnel involved are most cooperative when official
contacts are made and they know the project has been
authorized.65 When an outside agency is to be called on for
assistance in the implementing phase of an operation, par-

ticipation in the early planning phase will usually result

 

64Department of the Army, EM 101-5 Staff Officers
Field Manual Staff Organization and Procedure, p. 60.

65LeBreton and Henning,.gp. cit., p. 17.

43

in a better understanding of the problems involved, more
willing cooperation, freer exchange of ideas, and more ef—

ficient performance of assigned tasks.

Collecting and analyzing data. The planner cannot
proceed in developing the plan until all available relevant
data has been collected. Some operational-type plans re-
quire the analysis of considerable data. In general, data
must be obtained that will provide the answers to the
questions: What?, Where?, When?, Who?, How? and Why?, so
far as they relate to the basic objective and its accomplish-
ment. The analysis of this data is intended to provide the
planner and the chief with an estimate of the situation on
which to base a decision.66

The estimate of the situation is a logical and
orderly examination of all factors affecting the accomplish-
ment of the objective in order to reach a sound decision.
The purpose of the estimate of the situation is to determine
the most suitable course of action to accomplish the
objective.67

Actually, this step in the planning process is one

of decision making. The planner, having sought out alter-

native courses of action which would accomplish his objective,

 

66O. W. Wilson, Police Planning. p. 12.

67Department of the Army, EM 101-5 Staff Officers
Field Manual Staff Organization and Procedure, p. 55.

44

evaluates these alternatives, and selects the course of

action to be used as a basis for the plan.

Formulating details gf fhg plan. On the basis of
the analysis of data, the details of the plan are develOped.
It is this step in the planning process that prescribes the
actual execution of the plan.‘ The issuance of orders or
directives to involved units and personnel, the establish-
ment of schedules, and the provision for manpower and equip-
ment are some of the details required for carrying out the
plan.) Briefings must be held and assurance received that
all involved personnel understand fully when, how, and what
is to be done by whom.68 we can summarize this step by
saying:

The actual execution of the plan, in accordance with the
specified procedure, involves steps such as providing
the necessary resources to properly trained personnel

who possess the correct equipment and use the proper
methods at the correct place and time.59

Obtaining concurrences ang approval gf Eh§.El§E-
When plans affect more than one organizational unit, personnel
of affected units should always be given an opportunity to
review and recommend modifications to that part of the pro-
posed plan that affects their operations. As stated pre-
viously, this step is much simpler if personnel from units

involved participate in the initial development of the plan.

 

68John P. Kenney, Police Management Planning (Spring-
field, Illinois: Charles C. Thomas Publisher, 1959), p. 23.

69"Command Management School Reference Notes," 22-
cit., p. 3.

45

A formal written concurrence, or, where appropriate,
a statement of reasons for non-concurrence should be sought
from each affected unit. The planner then has the Oppor—
tunity to modify the plan to meet objections raised or to
submit the plan with a consideration of the non-concurrence,
answering each argument offered by the opposing unit. The
decision then lies with the chief, who can accept the pro-
posed plan, or the point of View expressed in the non-
concurrence, or some modification of either.70

Once the plan has been approved, publication and
distribution can begin.

III. LITERATURE ON POLICE PLANNING
FOR SPECIAL EVENTS

Literature directly devoted to police planning for
special events is extremely limited. Some of the police
texts cited previously make limited reference to this spe—
cific type of operational planning. The primary source, how-
ever, for any detailed discussion in this area is police
periodicals. Several articles have been published describing
the planning accomplished in preparation for police services
at various special events. The more noteworthy of these
articles will be reviewed here.

Wilson, in his text, Police Planning, discusses

situations imposing extraordinary burdens on the police such

 

700. w. Wilson, police Planning, p. 12.

46

as athletic events, parades, disasters, or sudden surges of

71 Much of the material presented concerns

criminal activity.
organizing to meet these special demands and the use of
special squads. In the section, "Plans for Unusual Needs,"
the five basic steps in planning are repeated. Although
there is a section entitled, "Planning for Special Community
Events," it is repetitive and rather general in SCOpe. In
"Plans for a Large Athletic Event," Wilson has reproduced

the various plans that were prepared for the 15th Annual All
Star Football Game, held in 1948 at Chicago, Illinois. Docu-
ments of the Chicago Park District Police such as a Station
Order assigning designated officers to specific duties at
selected sites, general information and instructions, infor-
mation regarding special movements, and a special event re-
port are included and are informative.

One of the most informative articles on police plan-
ning for special events was prepared by the Editorial Staff
of Spring QAQQ, the official magazine of the New York City
Police Department and was reproduced in The Police Chief.72
Entitled, "Operation Security," the article concerns the
planning and performance of the New York City Police Depart—

ment in coping with the security problems resulting from the

gathering of twenty-six foreign heads of state and their

 

71O.W. Wilson, Police Planning (Springfield, Illinois:
Charles C. Thomas Publisher, 1952).

72"Operation Security," The Police Chief (March, 1961).

47

ministers at the 15th Session of the United Nations General
.Assembly in September, 1960. The presence of such contro-
versial figures as Fidel Castro and Nikita Khrushchev com-
bined with the open animosity among world leaders at the
time posed a security problem unprecedented in police
history.

The planning required for this operation was most
extensive. The Secret Service, Federal Bureau of Investi-
gation, State Department, Coast Guard, and U. S. Army are
some of the Government agencies that were involved. A chain
of successive planning conferences were held. The following
key decisions were made at these police conferences:

Adequate police details were to be assigned at key
locatiOns to prevent disorder. A motorcade on a 24-
hour basis was assigned to each delegate, with a
ranking officer in charge at all times. Permanent
details were set up at diplomatic residences, at the
United Nations and at Pier 73 where the Baltika was
to be berthed, with a superior Officer in command at
each location. Security routes, policed at all times,
were mapped to insure safe passage through the city
for the dignitaries. A Mobile Reserve Force, with
special transportation, was established. To keep all
units in constant touch with each other, a communi-
cations network was organized and put into 24-hours-
a-day operation.7

To implement these decisions over seventy orders,
containing 200 pages were published and distributed through-
out the department, covering all phases of the security

operation. Over three thousand press cards were issued,

some thirteen thousand police barriers placed, and the

 

Ibid.

 

48

department's stable of 232 bay geldings committed during the
operation.74

The article provides a comprehensive and detailed
account of this unique event and many of the principles em-
ployed in this apparently well-planned and efficiently-
executed operation could be adapted to any special event.

Another very informative account of the planning
problems facing large city police administrators in providing
security services at special events was presented by Robert
V. Murray, Chief of Police of Washington, D.C., to the
Institute on Police Planning and Research in May, 1964.75
The events described by Chief Murray are excellent illus-
trations of two kinds of major planning situations.

The Washington rally for jobs and freedom is an ex-
ample of a situation where the police agency has ample ad-
vance notification of the forthcoming event and sufficient
time for planning. The funeral Of the late President Kennedy,
on the other hand, is an example of a situation where there
is no advance notification, and the police must plan while
the event is in motion.76

Chief Murray relates the details of the rally for

jobs and freedom from the receipt of the initial information

 

74Ibid.

75Robert V. Murray, "Planning Necessary to Prepare
For Unusual Occurrences" (paper read at the Institute on
Police Planning and Research, May 14, 1964).

76Ibid., p. 3.

49

regarding the purpose, scope, and organization of the affair
in early July through the close of the event during the
evening hours of August 28, 1964.

The scope of the planning problem for this event can
be visualized by the numbers involved alone. A total of
5,217 men were on duty with the police department the day of
the event and took part in controlling an estimated 210,000
persons attending the rally.77

The fact that only two arrests were made in con-
nection with the rally attests to the fact that the planning
performed was effective and payed big dividends.78

While the rally for jobs and freedom had explosive
potentials, the state funeral of the late President Kennedy
was expected to be a quiet, orderly, dignified affair. How-
ever, providing protection for the family of the late Presi—
dent, for the new President and his family, and for the many
heads of foreign nations and other visiting dignitaries who
came to Washington for the funeral, presented the police with
significant problems.79 Some of the details of these

problems are outlined by Chief Murray in the latter part of

his address.

 

77Ibid., p. 9.

781bid., p. 10.

791bid., p. 11.

50

IV. SUMMARY AND CONCLUSIONS

This section summarizes the analysis of the liter-
ature. To do this each of the five principles contained in
the model planning process are compared to the relevant
literature analyzed in the study. To avoid duplication of
material presented in the previous sections, only key points
in the literature relating to the model will be presented.

Conclusions are developed from the summary.

Summary

Assignment gf planning responsibility. When the
need for developing a plan has been determined an official
planning group should be organized. "At times the choice of
persons is prescribed by the nature of the project and
regular job duties of persons selected. Occasionally . . .
projects are directed to prescribed departments."80

Wilson says: "The department must be organized to
assure that planning will be done both promptly and ef—
fectively. This is accomplished by placing responsibility

for planning on designated units and individuals."81

Analysis gf the planning problem. "Analysis of the
work to be performed during planning establishes the tasks

which must be completed and the sequence for performing

 

80LeBreton and Henning, 2p, cit., p. 16.

81O. W. Wilson, Police Planning. P. 7.

51

those tasks."82 LeBreton and Henning present the following

description:

This stage is extremely important because it gives
meaning to the division of labor within the planning
group, provides direction to each member, indicates
any problem of excessive overlap, and allows for the
setting of more precise time standards for the com-
pletion of various components of the plan.8.3

Selection of a course of action. This is a process

of decision-making. After analyzing the situation the
police planner should collect as many facts bearing on the
situation as possible. Allen P. Bristow and E. C. Gabard,
in their text, Decision—Making.fg Police Administration,
summarize the fact-finding process this way:84
Fact-finding is probably one of the most difficult
areas in decision-making. To obtain decisions of
quality, best practices seem to indicate: (1) that
the police administrator must relate the time spent
seeking information to the urgency of the decision
(2) that he must learn the location of and must de-
velop sources of information; and (3) that he must

develop objectivity in his analysis of facts and in
the assumptions he draws.8

Once the fact-finding task is completed, factors
which may adversely affect the accomplishment of the ob-

jective are determined and listed. This is done by

 

82Department of the Army, EM lOl-5 Staff Officers

Field Manual Staff Organization and Procedufg, p. 62.

83LeBreton and Henning, pp. cit., p. 17.

84Allen P. Bristow and E. C. Gabard, Decision-
Making f3 Police Administration (Springfield, Illinois:
Charles C. Thomas Publisher, 1961).

85Ibid., p. 49.

52

analyzing those aspects of the situation which could logi-
cally combine to impair successful accomplishment of the

objective.86

All feasible courses of action which will accomplish
the objective if successful must be formulated and listed.87

Bristow and Gabard write:
The selection of alternatives and their considerations
indicates: (1) that the widest range of alternatives
possible must be selected, (2) that selected alterna-
tives must be evaluated by various considerations, and
(3) that the alternatives and considerations should be
written or diagramed to clarify their relationships
for the police administrator.8
The alternative courses of action are then compared
on the significance of strengths and weaknesses, and a con-
clusion is reached as to the most suitable one. "The best
course of action is ordinarily the one which has the most
significant advantages and the least serious disadvantages
in the efficient use of resources required to accomplish
the mission."89
The course of action selected for adaption is formu-
lated into a clear, concise, logical statement containing as
much of the elements of who, what, when, where, how, and why

as appropriate.90

 

86

 

Department of the Army, EM 101-5, p. 56.
87Ibid.
88 . .

Brlstow and Gabard, 2p. Cit., p. 68.
89Department of the Army, EM 101-5, p. 56.
90

Ibid.

53

Implementation gf fhe pfag. Where there are various
parts of a plan which are interrelated (conclusions arrived
at for one part of the plan affect conclusions in other
parts) they must be integrated into a tentative plan out-
lining the concept of the operation.91

After the tentative plan has been prepared con-
currences must be obtained. Wilson says, “Any unit that
does not approve the plan or some detail of it should be
required to submit a written statement of reasons for non—
concurrence."92

The tentative plan should then go to the Chief or
other designated authority, who reviews, refines, and ap-
proves the plan.93

A final plan is then prepared which provides the
necessary resources and directions required in the operation.
John G. Glover, in his book, Fundamentafg‘gf Professional
Management, outlines the following steps for making a plan
operative:94

A. Arrange to carry out or execute the plan.
B. Develop the precept of conduct and the means of

control for executing the plan.
C. Create and develop the necessary standards or

 

 

criteria.
91 . .

LeBreton and Hennlng, gp. c1t., p. 18.
92O. W. Wilson, Police Planning, pp. 12-13.
93

Department of the Army, EM 101—5, p. 62.

 

94John G. Glover, Fundamentals gf Professional
Management (New York: Republic Book Company, Inc., 1954).

54

D. Prepare the procedural manual containing explanatory
instructions to make the plan effective.

E. Develop the complementary time table for each event
within the plan, including quantity and quality
elements.

F. Prepare the necessary training manuals for those
persons who are responsible for the effective
performance of the plan.

G. Arrange for proper supervision.

H. Devise an adequate system of communication.95

Evaluation gf‘fhg.pfag. The results of plans should
be evaluated. This is necessary in determining whether a
correct alternative was chosen, whether the plan was ef-
fective, which phase, if any, was poorly implemented, and
whether additional planning may be required. In addition,
the effects of the executed plan on other departmental oper—
ations must be determined. "Follow-up is the control factor
essential for effective departmental management."96

In the management cycle, the link between evaluation
and new planning is "feed-back." It is the channeling back
into the planning stage the lessons learned from executed
plans. It should include recommended changes in future
plans. This information should go to the individual who is
in a position to make use of it, if it is to be effective.
Feed—back is a vital link between review or evaluating and
replanning. It provides the intelligence on which future

decisions are based. There are a number of ways feed—back

 

951bid.. p. 74.

96Kenna/.22. cit., p. 23.

 

55

may be accomplished. Any of the communication techniques

such as reports, conferences, lectures, staff meetings,
charts, graphs, etc., may be useful. By collecting, evalu-
ating, and plowing this information back into future planning,
the management cycle becomes continuous, and steady progress

toward the desired objective is facilitated.97

Conclusions

In the preceding analysis of the literature each of
the five principles contained in the proposed model planning
process was compared to existing literature. As a result
each principle was documented by specific references in
various publications. In no instance was it determined that
any principle was in conflict with relevant literature. It
can be concluded, therefore, that the available literature

supports the model planning process proposed in the study.

 

97"Command Management School Reference Notes," 22-
cit., p. 13.

 

CHAPTER IV

CASE STUDIES OF POLICE PLANNING PROCEDURES

FOR SPECIAL EVENTS

This chapter reviews the field research that was
conducted during the study. The first section discusses the
method used in collecting the empirical data. It is followed
by a narrative analysis of the material collected. Con-
clusions, developed by an analysis of the results of the
case studies as compared to the prOposed model planning

process, complete the chapter.
I. FIELD RESEARCH METHODOLOGY

The case studies were conducted through the use of
personal interviews with police agencies known to have en—
gaged in planning for security services at special events.
Personnel interviewed were those with a personal involvement
in the planning process conducted at their respective police
agencies.

The interviews were conducted by the researcher, and

although an interview schedule1 was prepared, it was not

 

1see Appendix A.

56

57

used for direct questioning. Rather, an open—end interview
was conducted with the respondent relaying information in
chronological, story-telling manner and the researcher asking
questions only to clear up hazy areas or to obtain information
on an essential point.

At the start of the interview the respondent was
asked to select and describe a specific special event with
which he was familiar and for which his police agency had
prepared plans. This specific event was to be used as a
basis for all information presented to the researcher.

The interview schedule was used as a checklist prior
to concluding the interview to assure that all relevant areas
of interest had been covered.

Following the interview, all the data collected was
summarized and an analysis conducted to determine the basic
details of the planning process used by each agency. The
details of these planning processes were developed into a

narrative summary and are presented in the following section.

II. CASE STUDIES

Case Study if

The agency selected for field research was the
Chicago Police Department. The interview was conducted with
planning personnel of the Traffic Division. The special

event which was used as the basis for the material presented

58

was the visit of President Lyndon B. Johnson to the City of
Chicago on 23 April 1964.

The President was scheduled to arrive by military
aircraft at O'Hare Field. He would depart from there, via
heliCOpter, weather permitting, and proceed to Meigs Field.
A motorcade would then be formed carrying the President and
his party to their hotel suites. Approximately an hour
later the official party would proceed by motorcade to a
banquet hall. At the conclusion of the program the President
would either proceed to Meigs Field by motorcade, depart
there for O'Hare Field by helicopter, and leave immediately,
or he would return to the hotel where he would stay over-
night and depart the following day.

The Department was given several months advance
notice of the visit. Action taken during this period in-
cluded the rescheduling of leaves and other absences so that
a maximum number of police officers would be available for
duty during the event. Approximately two weeks prior to the
event Secret Service Agents arrived to participate in the
planning.

The Deputy Superintendent, Bureau of Field Services,
had the responsibility for over-all coordination of the
preparation of the plan. He is the second ranking admini-
strator in the Chicago Police Department, working directly

under Superintendent Wilson (Figure l).

 

 

59

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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60

An initial planning conference was conducted at
which the chiefs of the following divisions or agencies and
their planning personnel were present: Patrol Division;
Traffic Division; Detective Division; Task Force; Traffic
Engineering; Secret Service; U. S. Army; U. S. Navy; and
the Office of the Mayor.

All aspects of the planning problem were discussed.
Securitywas to be the prime consideration of the plan.
Information on the arrival and planned itinerary of the
President was provided by the advance Secret Service Agents.
Plans from previous VIP visits were reviewed. The responsi-
bilities of each Division Chief were established. The
agencies not under command of the Deputy Superintendent were
requested to contribute to the plan in accordance with their
particular specializations. A second conference was
scheduled and interested personnel were directed to have all
tentative plans completed by this time. All personnel re—
turned to their respective divisions to complete their as-
signed planning tasks.

At the Traffic Division the proposed itinerary was
laid out on planning maps. The situation was carefully
analyzed. Plans from previous events encompassing the same
general areas were screened for pertinency. Relevant evalu—
ation reports from previous events were considered. The
primary decision—making factor to be resolved concerned the

routes to be recommended for the motorcades. All feasible

61

routes were developed and analyzed as to significant
advantages and disadvantages. The alternative routes were
compared and the ones deemed most advantageous were selected.
Details for the deployment of personnel and equipment were
formulated and necessary policies and procedures were
established for the Traffic Divisions participation in the
event. A tentative plan was prepared for the Chief of the
Traffic Division to present at the second planning
conference.

The planning method used by the Deputy Superintendent
at the conference was to start at the scheduled initial
arrival point and develop the plan, proceeding step by step,
through the scheduled departure of the President. The Chief
of Detective Division, responsible for security at O'Hare
Airport, the President's arrival point, led off the conference
by outlining his tentative plan. Comments were received from
others in attendance and when general concurrence was at-
tained the tentative plan was approved and the official re-
sponsible for the next phase in the itinerary repeated the
procedure by outlining his respective part in the over-all
plan.

Disagreements that arose between participating units
were resolved by the Deputy Superintendent. An example of
this procedure occurred when the Traffic Division, re—
sponsible for escorting the official motorcade, and the

Patrol Division, responsible for securing the route of the

62

motorcade, could not agree on the route to be used. The

route most advantageous to the Patrol Division was unsatis—
factory to the Traffic Division because of its unsuitability
for the use of three-wheel motorcycles which were to be

used in the escort. To resolve the dissension the Deputy
Superintendent ordered a dry-run of the motorcade over the
route in question with all the dissenters as observers. All
agreed the route was unsatisfactory and the Traffic Division's
recommendation was accepted.

When all the components of the plan had been approved
the conference adjourned and the participants returned to
their respective divisions to prepare the final plan in the
form of special orders. Personnel, equipment, material,
policies, procedures, and special instructions required in
the operation were provided for in the special orders.

.Each department prepared the special order pertaining
to its part in the operation2 for the signature of the
Deputy Superintendent, who reviewed and signed each order.
Publication and distribution was then accomplished.

Twenty complete sets of the special orders were
forwarded to the Inspection Division, which was responsible
for evaluating the operation. In addition, supervisors in
the Traffic and Patrol Divisions were required to complete a

"Special Event Evaluation Report" (Figure 2) setting forth

 

2see Appendix B for the Traffic Divisions Special
Order.

fi'

 

 

 

SPECIAL EVENT EVALUATION REPORT / 'cmcmo poucs DEPARTMENT 63

PREPARE IN DUPLICATE

 

NAME OF' EVENT LOCATION DISTRICT

 

 

 

DATE l TIME OF EVENT TIME OF POLICE DETAIL

FROM HRS To HRS BEGAN HRS ENDED HRS TOTAL HOURS
EVENT SPONSOR (NAME,ADOREss & PHONE No.1

 

 

 

SPONSOR'S REPRESENTATIVE (NAME,ADDREss a: PHONE No.)

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

PERMIT NO. . EXPECTED ATTENDANCE POLICE ESTIMATE
AFFILIATION OF GROUPS INVOLVED GROUPS PREDOMINANTLY
E] m... E] m...
TOTAL NO. OF POLICE DEPUTY CHIEFS CAPTAINS LIEUTENANTS SERGEANTS FOOT PATROLMEN
3/W M.C. SQUADS ISOUADROLS CIV. DRESS YOUTH OFF. POLICEWOMEN OTHER
1 MAN 2 MAN
TOTAL MAN HOURS WEATHER CONDITIONS (OTHER) ARRANGEMENTS SATISFACTORY 1'

 

 

D RAIN D SNOW D CLEAR D CLOUDY D WARM D COLD D D YES D NO

EVALUATE THE COVERAGE OF THIS EVENT, AND GIVE RECOMMENDATIONS, IF ANY.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

OFFICER IN CHARGE OF DETAIL (NAME, RANK 1 STAR No.) REPORTING OFFICER (NAME,RANK II sTAR No.)

 

 

 

CPD—51.951 (2/62) DISTRIBUTION: TRAFFIC DIVISION-ORIGINAL To TRAFFIC PLANNING sECTION; DUPLICATE TO TRAFFIC AREA
PATROL DIVISION-ORIGINAL To PATROL PLANNING sECTION; DUPLICATE To DISTRICT

64

their evaluation of the coverage of the event and giving

recommendations if appropriate.

Case Study if

The agency selected for field research in this case
study was the Department of Public Safety, Michigan State
University, East Lansing, Michigan. The interview was con—
ducted with planning personnel of the Protective Service
Division, which is responsible for security services at
special events. The Michigan State University home football
games were selected as the special events on which the study
was based.

Normally, five home football games are scheduled at
the Michigan State University's Spartan Stadium, located on
the campus grounds. The games are usually held on Saturday
afternoons with the more popular contests drawing sellout
crowds of over 76,000 persons.

The major planning problems involve traffic and crowd
control. Although primary responsibility for security
services at these events rests with the University's Depart-
ment of Public Safety, other law enforcement agencies are in-
volved by the serious traffic problems that result from the
gathering of so many people at one place at the same time.
The number of vehicles parked at these games in preceeding

years has ran from 10,000 to 15,000 per game.

65

The Department of Public Safety is reimbursed by the
Athletic Department for expenses incurred in providing in-
ternal security at the Stadium. Special Police, employed by
the East Lansing Police Department for traffic control
duties, are also utilized by the University Police for
security duties inside Spartan Stadium. Students used for
traffic control duties are also used for crowd control in-
side the Stadium.

The Uniform Commander, Protective Service Division,
had the responsibility for over-all coordination of football
planning. He is the second ranking administratOr in the
Department of Public Safety, working directly under the
Director (Figure 3). A Staff Corporal, assigned as Adminis—
trative Aid, assists with the planning function.

The coordination necessary to develop this plan was
effected through the use of a planning luncheon-meeting.
Representatives of the following agencies were present at
this meeting: Lansing Police Department; East Lansing
Police Department; Ingham County Sheriff's Office; Michigan
State Police; Michigan State Highway Department; and Ingham
County Highway Department.

Since the major area of interest of those at the
meeting was the traffic problem, this phase of the operation
was the primary target for the planning. All aspects of the
traffic situation were discussed. The plan from the previous

year was reviewed. The situation was brought up to date by

66

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67

an analysis of the probable change in traffic flow brought
on by the construction of a new freeway and the opening of a
new arterial street.

An inbound traffic flow plan was developed by using
the backward planning method. The planning started at the
objective which in the case of inbound traffic was the park-
ing lots. From these points the traffic flow plan was de-
veloped street by street and intersection by intersection.
This technique made it possible to determine the number and
type of control measures such as temporary signs, manned
traffic control posts, one—way streets, or police barriers
needed to execute the plan. After it was determined what was
needed for the operation, responsibility for specific details
was assigned.

The same procedure was used in the development of an
outbound traffic flow plan. A parking plan was also de-
veloped specifying the sequence in which available parking
lots would be filled. Procedures were established for park-
ing VIP's, members of the press, public conveyances, and
emergency vehicles. Escape routes for resident traffic not
attending the game were worked out and arrangements made to
notify those involved.

When all aspects of the proposed plan had been con—
curred in by interested parties the meeting adjourned and
representatives returned to their own agencies to prepare

for their participation in the event. A summary of the

68

meeting was prepared and placed in the Department of Public
Safety files (Figure 4).

The Uniform Commander proceeded with the preparation
of a tentative plan for the event. A check list, developed
from previous planning and kept current, was used to assure
that all details were considered. The plan provided for the
personnel, equipment, and material, needed for the operation
as well as the policies, procedures, and special instruc-
tions3 necessary for proper execution. Additionally, the
costs of all security services within Spartan Stadium was
computed for submission with the proposed plan.

The plan was then submitted to the Director of the
Department of Public Safety for approval. This step was
actually a formality as the Director had been kept informed
on a day to day basis on the progress of the planning.

After approval, the request for funds to pay for the services
scheduled was submitted to the Athletic Department for ap—
proval. The amount of funds provided is the determining
factor on the extent of security services provided at the
games. When this figure is available the plan is approved

or revised as appropriate.

Preparation then begins for implementation of the
plan. Such activity as the preparation of maps, the ordering

of signs, the recruitment and training of students for

 

3see Appendix C for Information For Stadium Police
Officers.

69

Figure 4. Summary of Football Planning Meeting, Department

of Public Safety, Michigan State University.

 

 

To:
From:

Adam J. Zutant, Sergeant
Lieut. A. H. Andrews

Subject: Summary of Football planning meeting held

1.

July 31, 1963

It was agreed there would be no incoming football
traffic northbound on Hagadorn Rd. from Mt. Hope.

It was agreed that there would be no Outgoing football
traffic northbound on Hagadorn between Shaw Lane and
Mr43.

It was agreed that the UniVersity would provide signs
to the Lansing Police as we have always done to assist
them in routing outgoing traffic south On Pennsylvania
from Mt. Hope.

It was agreed that during outgoing traffic this depart-
ment would prevent outgoing traffic exiting Spartan
Village on Crescent Rd., (on both Roads), and would post
a traffic officer at Mt. Hope and Fairway to allow
Spartan Village people to exit from Fairway during the
period of heavy outgoing football traffic.

Representatives of the State Highway Department agreed
to furnish to ICHO advance warning and turn signs to be
placed on I-96 to help Lansing Police route their foot-
ball traffic up Pennsylvania and across Mt. Hope and
Vise versa.

It was agreed by representatives of the State Highway
Department and the County Highway Department that our
use of I-96 trail blazing signs would be appropriate and
very useful on the Campus to assist people in finding
I-96 during outgoing traffic.

Chief Pegg and our department agreed that after his
council meeting of this Monday, we would meet during the
week, refine our man power estimates and approach the
athletic department for financing for additional student
assistance both to East Lansing and to this department.

Captain McDonald in a private conversation with me after
the meeting, agreed to furnish two peOple to take care
of the press box in the stadium on a volunteer basis
from State Police and requested that we keep this

 

 

7O

Sergeant Zutant — page 2

10.

11.

12.

13.

arrangement private among ourselves so far as possible.
Further, Captain McDonald stated that in the event he
had any number of volunteer's he would endeavor to
furnish them to us since we had a more flexible arrange—
ment than would prevail with the City of East Lansing.

In a private conversation after the meeting with the
Chief Deputy Sheriff and Under Sheriff they indicated
that it was in their private planning to expand their
traffic control operations as the State Police vacated
some of their obligations. SO it is possible that there
will be more traffic control assistance available from
the Sheriff's office than has heretofore been the case.

As a result of this meeting and our decision to use
trail blazer signs it will be necessary for us to order
the signs after we determine how many and this order
must take place immediately this week if we are to ex-
pect delivery in time. Associated with this will be the
need to review our outgoing traffic directional signs.
Determine which of those can be scrapped, which need to
be painted and to what extent (if any) we should re—
locate them or add new ones in consideration of the new
street construction which is taking place this summer.

It will be necessary further to advise John Kennedy at
concessions that we will be having a reduced number of
officers eating meals there and advise him that we will
not be able to predict the final number probably until
middle September.

As a result of the meeting, the importance of a care-
fully planned and vigorously executed student recruiting
program is obvious. It will be necessary, I think, to
assign a Corporal to this; to keep after him, and insure
that every possible resource is exhausted, to insure
that we have an adequate number of student assistants.
In association with this I will request Cp. Julian to
immediately finish one student helmet since it is
possible East Lansing may have some difficulty in
identifying their students and possibly our ideas and
past experience may be of assistance to them.

It was agreed at the meeting, that North bound Harrison
Rd. football traffic would not cross Shaw Lane, but
would enter the Campus on the normal incoming East bound
lanes of Shaw Lane. This will insure an adequate
barrier of distance between the two lanes of Marigold
traffic who enter the same intersection and will be
turned North on Harrison to enter at Willow Road.

14.

71

It will be necessary this year to design and build curb
jumpers. If you will recall last year we designed a
curb jumber. After an entire summer of dilatory tactics
by B & U they informed us it couldn't be built. This
year we must design something and get it built. We
will need it on Wilson Road (minimum) and perhaps at
other locations and we will certainly need them next
year in an increasing number.

 

 

72

traffic control duties must all be completed if the plan is
to be effective. Staffing of the plan is then completed by
issuing specific assignments and time schedules.

Evaluation of the plan is provided for by scheduling
a debriefing session with all supervisors immediately follow—
ing the completion of the operation. All comments made at
this meeting are recorded and put into the files for use in
future planning. Traffic counts are conducted at all parking
lots during the game. Automatic traffic counters are also
used on specific roads to determine traffic flow. This in-
formation is recorded and put in the files for future

planning.

III. SUMMARY AND CONCLUSIONS

This section summarizes the field research by
comparing the empirical data obtained to the proposed model
planning process develOped in the study. Conclusions re-

sulting from this analysis are then presented.

Summary

Assignment gf planning responsibility. When the

 

need for a plan has been recognized and the objectives formu-
lated, the responsibility for preparation of the plan must
be assigned to some individual or unit in the organization.
This is a basic principle of the "management by exception"
concept, which, in all but the smallest organizations, is a

must for effective management.

73

In both case studies the responsibility of planning
for security services at the special events involved was as—
signed to individuals occupying high positions in the
organizational hierarchy. In Case Study #1 this assignment
was conditioned by the nature of the special event. The
security of the President of the United States was the type
of task that would take priority over other duties and one
which required maximum coordination among several agencies.
It naturally follows that a high-level administrator in the
department would be assigned this responsibility. It can be
said generally, that the wider the scope of required coordi-
nation, the higher the position of the coordinator.

In Case Study #2 the primary factor in the assignment
of planning responsibility was the regular job function of
the individual involved. In a department of this size the
number of administrators is extremely limited leaving little
room for delegation of this type responsibility. It can be
said, generally, that the smaller the organization, the

higher the position of the coordinator.

Analysis pf the planning responsibility. When the
assignment of responsibility for planning or a planning
directive is received by the police administrator he
ordinarily calls an initial planning conference. To this
conference are invited key administrators from elements of
the agencies to be involved in the operation, and often,

representatives from other interested agencies or "specialist"

74

personnel with some specific qualification necessary to the
operation. At this conference the administrator responsible
for over—all coordination of the plan briefs the conferees
on the planning problem, relays any guidance from higher
echelons, presents his views, and secures their comments.
From this analysis the planning tasks are determined.
Planning assignments are made, based on the number, com-
plexity, and priority of required planning tasks. A
schedule is established for completion of all planning tasks.
In both case studies the conference method was used
to analyze the planning problem. In Case Study #1 the pro-
cedure outlined above was used. In Case Study #2 however,
the area of interest encompassed in the planning situation
resulting from the special event was outside the authority
and jurisdiction of the agency having primary responsibility
for preparation of the plan. Here, it was a matter of
analyzing the situation, agreeing on a course of action, and
accepting responsibilities based on jurisdictional
boundries. Once all tasks had been covered the function of
the administrator responsible for over-all coordination of
the plan became one of fulfilling his agency's responsi—
bilities and of maintaining liason among the other interested

agencies.

Selection of a course of action. In both case

 

studies some decision—making was performed. In planning for

the security of the President the decision—making processes

75

were more apparent and distinguishable than in planning for
security measures at football games, where much of the
planning had been reduced to implementation of routine pro-
cedures. The selection of the President's motorcade route
in Case Study #1, which was previously discussed, illustrates
the decision-making technique utilized by the Chicago Police
Department. However, many of the decisions made in both
planning situations were apparently accomplished by a less
formal procedure than that outlined in the model. This in
no way means that a procedure similar to that outlined in
the model could not have been used to obtain as good or
better decisions. Because the special event in Case Study
#2 was a recurring one, much emphasis was placed on the
preceding years plan. If the previous years plans are ac—
companied by effective evaluations they can be of im—
measurable value. However, the practice of using preceding
plans as a "shortcut" method of planning can be dangerous.
In a proper planning process the administrator should at-
tempt to avoid the mere extension into the future of exist-
ing plans. Alternatives significantly different from the

prior plans should be considered at frequent intervals.4

Implementation pf the plan. In Case Study #1

 

tentative plans were submitted by planning personnel at a

second planning conference. Concurrence among interested

 

4LeBreton,pp. cit., p. 139.

76
agencies was obtained right at the conference, although not
in a formal written manner as outlined in the model. How-
ever, when person to person relationships are possible, co-
ordination is generally assured.

The Deputy Superintendent, responsible for over-all
coordination of the plan, was also the approving authority.
After his approval of tentative plans at the conference,
final plans in the form of special orders were prepared by
the respective agencies. These were again submitted to the
Deputy Superintendent for review, approval, and signature.
Publication and distribution were then accomplished.

A similar process took place in Case Study #2. In
addition, a determination was made on the amount of funds
required to support the security services proposed for inside
the stadium. Approval for this fund request had to be ob—
tained prior to the preparation of a final plan. The best
of plans are ineffective unless they are supportable by

existing resources.

Evaluation pf fpg.pfap. In both case studies re-
sponsibility was fixed and procedures established for evalu-
ating the effectiveness of the respective plans. In the
Chicago Police Department the responsibility for formal
evaluation of all operations is in the purview of the
Inspection Division. This system affords the advantage of

having the evaluation function performed by unbiased

77
specialists, skilled in the essential techniques of inspect-
ing, evaluating, and reporting.

In addition to the formal evaluation performed by
the Inspection Division, each supervisor participating in
the operation, was charged with evaluating their respective
portions of the plan. This procedure provides the admini-
strator with an appraisal from the operating or "grass
roots" element of the organization.

At Michigan State University's Department of Public
Safety the evaluation function was considered an inherent
aspect of supervision. Procedures were contained in the
plan for evaluation by supervisors and for recording these
evaluations. Although the necessity for this type of "self-
evaluation" is understandable in this size agency, there is
an inherent danger in placing primary emphasis on this
system. Human nature being what it is, not every police
supervisor can be counted on to submit an impartial and un-
emotional appraisal on an operation in which he has had
supervisory responsibility. A system of "double-checks"
provides more dependable coverage of the evaluation

function.

Conclusions

The analysis of the case studies indicates signifi-
cant variation in the planning processes completed at each

agency. These procedural differences may be attributed to

78

several causes. The respective size of police agencies
studied must be given primary consideration. Certainly some
procedural differences must be expected between a police de-
partment of the size of Chicago's, with over 10,000 assigned
officers, and the Michigan State University Department of
Public Safety, with only twenty-nine assigned police officers.
The nature of the special event for which the
planning is performed will also effect the complexity of the
planning process. Planning for security of the President of
the United States and his party, traveling around the City
of Chicago, requires different considerations than planning
for traffic and crowd control of from fifty to seventy-six
thousand people for three hours at a football game.
Regardless of these basic differences in Operating
procedures and in detail requirements of the planning, both
case studies, when analyzed against the five principles
contained in the proposed model planning process, established
the validity of these principles. The field research, al-
though rather limited in scope, did in fact offer empirical
evidence that the five principles outlined in the proposed
model planning process can be used to assist police ad-
ministrators in planning for security services at special

events.

CHAPTER V
CONCLUSIONS AND RECOMMENDATIONS

This chapter contains two sections. Conclusions
developed in the study are presented in the first section.
The final section outlines specific recommendations offered
as a result of observations obtained during the study. In—
cluded are several recommended areas for further study.
Some have a direct bearing on police planning while others
are only indirectly related. All would contribute to

available police knowledge.
I. CONCLUSIONS

The purpose of this study was to (1) review general
planning principles; (2) determine the essential elements
that should be considered in developing a proper plan for
security services at special events; (3) formulate a re-
liable model planning process which could be advantageously
used by police administrators in planning for security
services at special events.

At the beginning of the study the following hypothe-
sis was stated: The use of an established planning process
will assist the police administrator in proper planning for
security services at special events.

79

80

To test the hypothesis a model planning process was
proposed. This model was constructed by outlining the five
basic principles thought to be applicable in some degree to
any police planning situation.

The theoretical reliability of this model was then
tested by exposure and analysis to current literature in the
planning field. The literature selected for review and
analysis was necessarily chosen from a larger volume of
material, all of which could not possibly have been reported.
It was felt however, that the literature selected was suf-
ficiently varied to represent an adequate sample of planning
theory as related to police planning for special events.

In the analysis of the literature each of the five
principles contained in the proposed model planning process
was compared to existing literature. The researcher was
able to document each principle with specific references
from among the various relevant publications. It seems
justified, therefore, to conclude that an analysis of the
literature definitely supports the hypothesis.

To provide an empirical test for the model, two case
studies were conducted at law enforcement agencies known to
have been involved in planning for special events. It is
reCOgnized that this limited number of agencies studied will
have an effect on the reliability of any conclusions de-
veloped from the field studies. The number of agencies that
could be studied, however, was limited by the prevailing

economic and time factors.

81

To compensate for the lack of quantity in the field
research, careful consideration was given to the selection
of agencies studied in an attempt to obtain as much diversi—
fication as possible. The Chicago Police Department,
selected for one case study, has over 10,000 police officers
assigned. Conversely, the Michigan State University De-
partment of Public Safety, subject of the other case study,
has only twenty—nine assigned police officers.

During the field research, care was used to obtain
variety in the type of special event planning to be studied.
In one case study the emphasis was on personnel security,
while in the other, traffic and crowd control were the major
interests. It is felt that the contrasting characteristics
of the law enforcement agencies and of the special events
selected for the study add to the reliability of the con-
clusions derived from the field research.

In the analysis of the case studies each of the five
principles contained in the proposed model planning process
was compared to the empirical data obtained. Each principle
was documented, in varying degrees, with empirical evidence
which establishes the validity of all five principles con-
tained in the model. The quantitative limitations of the
field research however, preclude the formulation of any
positive conclusions. It is therefore concluded, that the

field research generally supports the hypothesis.

82

In summary, conclusions developed in the study are:
(1) An analysis of the literature definitely supports the
hypothesis; and (2) An analysis of the field research
generally supports the hypothesis. Based on these two
findings a final assumption can be made that the use of an
established planning process will assist the police admini-
strator in proper planning for security services at special

events.
II. RECOMMENDATIONS

Planning at all levels of all size law enforcement
agencies requires observance of certain principles if it is
to result in effective operations. To establish these
principles a proposed model planning process was developed,
theoretically and empirically tested, and found valid. It
is recommended that this model planning process be used by
police administrators charged with planning for security
services at special events.

No planning process, however, will produce effective
planning without certain required human attributes. The
proposed model planning process does not in any way decrease
the necessity for initiative, enthusiasm, and sound judge—
ment in the administrator. Consistent success in planning
rests firmly on these individual characteristics.

During the research several problem areas were

recognized that, although they were outside the scope of

83

this thesis, would seem to warrant additional study. Many
questions arose relating to police organizational concepts.
Where in the organizational structure of the law enforcement
agency should the responsibility for major planning be
assigned? There are obvious advantages in the use of
specialized planning units but what are the long—range ef-
fects on the operational or line units? What size should a
law enforcement agency be to economically utilize a permanent
planning unit? Is it feasible to integrate the planning and
inspection functions and assign them to a single unit?

Other questions arose relating to police procedures.
There is apparently much to be done in the area of decision-
making. How do our police administrators develop the
ability to make sound decisions consistently? This study
brought out the importance of evaluation in the planning
process. The development of a recommended system for
measuring the effectiveness of an operation and the utili-
zation of resources would certainly be a worth—while project
for future research.

The growing complexity of the tasks facing our law
enforcement agencies today emphasizes the need for a con-
tinual search for new and better-teChniques. Today, more
than ever before, the police official must be alert to the
danger that accompanies satisfaction with the status quo.
The English philosopher Herbert Spenser said: "A closed

mind is a bar against information, a proof against all

arguments, and a guarantee to keep man in everlasting

. l
lgnorance."

 

l"The Provost Marshal and ACMS," pp. cit., p. 9.

84

B IBLIOGRAPHY
A . BOOKS

Branch, Melville C. The Corporate Planning Process. New
York: American Management Association, 1962.

Bristow, Allen P. and E. C. Gabard. .Qgpfsion—Making.fp
Police Administration. Springfield, Illinois:
Charles C. Thomas, Publisher, 1961.

Clift, Raymond E. .A Guide f9 Modern Police Thinking.
Cincinnati: The W. H. Anderson Company, 1956.

Curry, J. E. and Glen D. King. Race‘Tensions and the Police.
Charles C. Thomas, Pablisher, 1962.

Ewing, David W. (ed.). Long—Range Planning For Management.
New York: Harper and Row, Publishers, 1958.

Germann, A. C. Police Executive Qevelopment. Springfield,
Illinois: Charles C. Thomas, Publisher, 1962.

Glover, John G. Fundamentals pf Profesgional Management.
New York: Republic Book Company, Inc., 1954.

Goetz, Billy E. Management Planning and Control. New York:
McGraw—Hill Book Company, Inc., 1949.

Kenney, John P. Police Management Planning. Springfield,
Illinois: Charles C. Thomas, Publisher, 1959.

, and John B. Williams. Police Operations.
Springfield, Illinois: Charles C. Thomas, Publisher,
1960.

LeBreton, Preston P. .A Guide 29; Proper Management Planning
fpf Small Business. Baton Rouge, Louisiana: College
of Business Administration, Louisiana State Uni-
versity, 1963.

, and Dale A. Henning. Flagging Theory. Englewood
Cliffs, New Jersey: Prentice-Hall, Inc., 1961.

85

86

Leonard, V. A. Police Organization and Management.
Brooklyn: The Foundation Press, Inc., 1951.

Simon, Herbert A., Donald W. Smithburg, and Victor A.

Thompson. Public Administration. New York: Alfred
A. Knopf, Inc., 1962.

Smith, Bruce. Police Systems fp the United States. New
York: Harper and Brothers Publishers, 1940.

Wilson, 0. W. (ed.). Parker pp Police. Springfield,
Illinois: Charles C. Thomas, Publisher, 1957.

. Police Planning. Springfield, Illinois:
Charles C. Thomas, Publisher, 1952.

B. PUBLICATIONS OF THE GOVERNMENT,
LEARNED SOCIETIES, AND
OTHER ORGANIZATIONS

Department of Commerce and Industrial Development. 1963
Statistical Guide for New York City. New York:

Department of Commerce and Industrial Development,
Publisher, 1963.

Department of the Army. .EM 19-10 Military Police Operations.
Washington: Government Printing Office, 1955.

. .EM 101—5 Staff Officers Field Manual Staff

Organization and Procedure. Washington: Government
Printing Office, 1960.

International Association of Chiefs of Police. The Police
Yearbook, 1963. Washington: International Associ-
ation of Chiefs of Police, Inc., 1963.

 

The International City Managers' Association. Municipal
Police Administration. Chicago: The International
City Managers' Association, 1954.

 

C. PERIODICALS

Cassels, Louis and Raymond L. Randall. "6 Steps to Better
Planning," Nation's Businegp, 49:42-46, August, 1961.

"Operation Security," The Police Chief, 8—16, 35-38, March,
1961.

87

Popkin, Roy S. "When Disaster Strikes," The Police Chief,
36-38, August, 1964.

 

Radice, Joseph A. "Possible Rioting at Jazz Festival
Averted by Police," FBI Law Enforcement Bulletin,
June, 1962.

Spring 3100, 33:2-18, September, 1962.

Spring 3100, 33:4, October, 1962.

D. UNPUBLISHED MATERIALS

"Annual Mummer's Parade." Operations Order No. 21-55,
Philadelphia Police Department. (Mimeographed by
the Traffic Institute, Northwestern University.)

"Command Management School Reference Notes." Fort Belvoir,
Virginia: U.S. Army Command Management School,
1956. (Mimeographed.)

"Folsom Dam Dedication." Traffic Control Plan, California
Highway Patrol, May 5, 1956.

Murray, Robert V. "Planning Necessary to Prepare For Un-
usual Occurrences." Paper read at the Institute
on Police Planning and Research, May 14, 1964.

"RepUblican National Convention 1956." Traffic Control
Plan, California Highway Patrol, August 20-23, 1956.

"Special Event Planning." General Order 210.27, Department
of California Highway Patrol, February 2, 1959.

"Study of Police Services Required For Major League Baseball

Games." Memorandum by Inspection Division, Planning
Bureau, Kansas City Police Department, November 30,
1954. '

"The Provost Marshal and ACMS." Fort Gordon, Georgia:
Provost Marshal General School, 1960.
(Mimeographed.)

"University of California Student Disturbances, May, 1956."
Report and Recommendations by John D. Phillips, City
Manager, Berkeley, California, October, 1956.

APPENDIX A

INTERVIEW SCHEDULE

1. Date:
2. Agency:

3. Location:

Comments: I am interested in obtaining information regarding
the procedures employed by your agency in planning for
security services at special events involving the assembly

of large numbers of people. For the purposes of clarity,
could you select and base your answers on a specific special

event for which your agency prepared plans?

4. Date, Location, and Nature of the Event:

5. Special Police Problems Resulting From the Event:

I. Assignment of Planning Responsibility.

1. Was a specific person or unit within your agency
assigned the responsibility for over-all coordin-
ation of the preparation of the plan?

(a) What was the basis for this assignment?
(b) What was the planners position in the agency?

(c) was the assignment made in writing?

88

II.

89

Was authority delegated along with the

responsibility?

(a) Could the planner call on other activities for
assistance?

(b) Could the planner require reports, information,

etc. from activities within the agency?

Analysis of the Planning Problem.

1.

Was specific planning guidance received from the
Chief or other higher authority?

were the number of specific tasks to be completed
established?

Was the complexity of these tasks determined?

Was a priority or sequence established for per—
forming these tasks?

Were the planning tasks to be accomplished divided
in a meaningful and equitable manner?

Were planning tasks delegated commensurate with
the complexity of the task and the specialized
assistance available?

Were all planning tasks assigned to a specific
person or unit and did they all know what their
tasks were?

Were planning tasks assigned so as to avoid over-

lap or duplicity of effort?

90

9. Was a schedule established for completion times

of all planning tasks?

III. Selection of a Course of Action.

1. Was a determination made of what facts were needed?

2. Were all needed facts collected?

3. were these facts analyzed for their effect on the
problem?

4. WEre logical assumptions used in the absence of
facts?

5. Were significant difficulties or anticipated
problem areas determined and listed?

6. were all feasible courses of action determined and
listed?

7. were courses of action listed analyzed against
each anticipated significant difficulty listed and
the probable outcome determined?

8. ware courses of action compared, in terms of sig-
nificant advantages and disadvantages which
emerged during analysis, and the course of action
selected which promises the most success in ac-
complishing the objective?

9. Was the course of action selected translated into
a complete statement, showing who, what, when,

where, how, and why as appropriate?

IV.

91

Implementation of the Plan.

1.

Did the planner collect and integrate the various
parts of the plan into a unified, coordinated,
scheme of action?

Was a tentative plan prepared, outlining the
situation, mission, or objectives, broad concept
of operations, and general considerations?

Was the tentative plan circulated and formal
written concurrence obtained from all interested
agencies?

Was the tentative plan submitted to a designated
authority for approval?

After approval of the tentative plan, was a final
plan prepared which provided the necessary re-

sources and directions required in the operation?

Evaluation of the Plan.

1.

Was a specific person or unit assigned the re—
sponsibility for evaluating the effectiveness of
the plan?

Were procedures established for evaluating the
plan?

Did the provisions of the plan require operating
units to submit reports containing information

essential for evaluation?

4.

Was information relating to the effectiveness of
the plan collected, analyzed, and made available

for future planning?

92

DEPUTY SUPERINTENDENT

APPENDIX B

21 APRIL, 1964

BUREAU OF FIELD SERVICES

BUREAU OF FIELD SERVICES SPECIAL ORDER NO. 64-14.

SUBJECT

ROLL CALLS:

 

UNIFORMS:

COMMAND:

COMMUNICATIONS:

 

Visit of President Lyndon B. Johnson
to the City of Chicago, 23 April, 1964.

Companies "A", "B" & "C“
Gate “0” Soldiers Field at 1430 Hours.

Company "D"
Balbo Drive, east of Michigan Avenue
at 1430 Hours.

The Uniform of the day for this Detail
will consist of Blouse, White Gloves
and Batons. All personnel assigned
will equip themselves with flashlights.
As outlined in Department General
Order #63-12 Para III-c, No Optional
Equipment will be worn.

Chief Terrence T. Doherty, Traffic
Division, in overall Command.

Deputy Chief John Ascher, Patrol
Division, in command of the areas
along Balbo Drive, east of the I.C.
Tracks, south of Jackson Boulevard
with the exception of Meigs Field and
McCormick Place.

Deputy Chief Hamilton w. Pool, Traffic
Division, in command of Michigan
Avenue, Congress Street to 9th Street.

All Radio Communications concerning
this Event will be on City Wide III.
Command Personnel will provide them-
selves with aides and will insure that
someone is present at the car at all

93

DS/FS 8.0. 64-14

COMMUNICATIONS
CONT'D

 

DETAIL SECTOR:

 

94

times to receive and transmit messages.

Call Numbers are as follows:

Chief Doherty

Dep. Chief Ascher
Dep. Chief Pool

Routes between Meigs Field, Conrad
Hilton Hotel and McCormick Place.

 

 

 

 

9O
54

97

ITINERARY

O'Hare Field Arrive 1630 Hours Phase
Leave via Helicopter 1635 "

Meigs Field Arrive 1700 " I
Leave via Motorcade 1710 " I

Hilton Hotel Arrive 1720 " I
Leave via Motorcade 1820 " II

McCormick Place Arrive 1830 " II
Leave 2215 " III

Hilton Hotel Arrive 2225 " III
Leave 24 April 0900 " IV

Meigs Field Arrive 24 April 0910 " IV
MOTORCADE ROUTES

PHASE I From Meigs Field through north fence along
temporary roadway to Achsah Bond Drive. West

along Achsah Bond Drive to Lake Shore Drive.
North on Lake Shore Drive to Balbo Drive.

West on Balbo Drive to Michigan Avenue.

South on Michigan Avenue to Hilton Hotel.

SPECIAL INSTRUCTIONS:

 

T-Car stationed at Southbound Lake Shore

Drive Opposite Buckingham Fountain operated

95

DS/FS S.O. 64-14

PHASE I SPECIAL INSTRUCTIONS CONT'D
CONT'D

 

by Ptlmn. E. Simale #5890 TA#2 and J.
Skarupa #7411 TA#2 will shut off Southbound
Lake Shore Drive traffic on Radio Command
City Wide III.

T-Car stationed at Columbus Drive opposite
the south curb of Congress Street operated
by Ptlmn. F. Pancaro #8099 TA#S and F.
Haggemann #2583 TA#S will shut off South-
bound Columbus Drive Traffic on Radio Com-
mand City Wide III.

T-Car stationed on Northbound Lake Shore
Drive 100 feet south of Achsah Bond Drive
operated by Ptlmn. E. Merkl #10482 TA#4 and
G. Hickey #11446 TA#4 will stop all North-
bound traffic on Lake Shore Drive on Radio
Command City Wide III.

T-Car stationed on Columbus Drive 300 feet
north of the Band Shell operated by Ptlmn.
B. Szarley #9149 TA#3 will stop Northbound
traffic on Columbus Drive on Radio Command
City Wide III.

Intersection Control Ptlmn. R. Maher TA#S
#4948 stationed at the point north of Chicago
Natural History Museum Parking Lot where
Northbound and Southbound Lake Shore Traffic
merge will prevent any vehicles from entering
Northbound Lake Shore Drive when Motorcade is
approaching.

Intersection Control Ptlmn. F. Carollo #2909
TA#S stationed at east end of Roosevelt Drive
at Northbound Lake Shore Drive will prevent
any vehicles from entering Northbound Lake
Shore Drive when Motorcade is approaching.

Companies "A", "B", "C" and "D" will follow
the assignments shown on the Phase I Assign-
ment Chart attached.

The First Platoons of Company "A" and "B"
will flare out as indicated in Phase I As—
signment Chart.

96

DS/FS 5.0. 64—14

PHASE I SPECIAL INSTRUCTIONS CONT'D
CONT'D

 

Intersection Control Ptlmn. F. Rizer #11454
TA#l stationed at Eastbound Achsah Bond Drive
and Northbound Lake Shore Drive to control
traffic and prevent vehicles from entering
Eastbound Achsah Bond Drive when the Parking
Lot is filled. '

3-W Officers A. Sabatello #5097 TA#l and J.
Burlinski #5164 TA#l stationed in Northerly
Island Parking Lot will prevent vehicles from
parking west of the barricades placed by
Traffic Engineering Center.

PHASE II During the hour the President is in the

'__—____' Hilton Hotel, the Motorcade vehicles will be
turned so as to face north at the west curb
of Michigan Avenue at the front of the Hilton
Hotel. North on Michigan Avenue to Balbo
Drive. East on Balbo Drive to Columbus Drive.
South on Columbus Drive into Lake Shore Drive
then to 23rd Street. Across the 23rd Street
Ramp and down to the Lower Level Tunnel.

SPECIAL INSTRUCTIONS:

 

T-Car stationed at Columbus Drive Opposite
the south curb of Congress Street operated by
Ptlmn. F. Pancaro #8099 TA#S and F. Haggemann
#2583 TA#S will shut off southbound traffic
on Columbus Drive on Radio Command City Wide
III.

T-Car operated by Ptlmn. E. Simale #5890 TA#2
and J. Skarupa #7411 TA#2, at the end of
Phase I will move to Southbound Lake Shore
Drive and Roosevelt Drive, just north of
Passerelle, will prohibit all traffic from
entering Northbound Columbus Drive or South-
bound Lake Shore Drive on Radio Command City
Wide III.

T-Car stationed on Columbus Drive 300 feet
north of the Band Shell operated by Ptlmn. B.
Szarley #9149 TA#3, at the end of Phase I,
will move to 14th Blvd. and Southbound Lake
Shore Drive to prevent traffic from entering
Southbound Lake Shore Drive on Radio Command
City Wide III.

DS/FS 5.0. 64-14
PHASE II

97

SPECIAL INSTRUCTIONS CONT'D

 

 

CONT'D

PHASE III

 

 

T—Car stationed on Northbound Lake Shore
Drive 100 feet south of Achasah Bond Drive
operated by Ptlmn. E. Merkl #10482 TA#4 and
C. Hickey #11446 TA#4, at the end of Phase

I, will move to waldron Drive and Southbound
Lake Shore Drive to prohibit traffic entering
Southbound Lake Shore Drive on Radio Command
City Wide III.

3-W Officers A. Sabatello #5097 and J.
Burlinski #5164 stationed on Northerly Island
Parking Lot will, at the end of Phase I, move
to the exits of South Soldier Field Parking
Lot at Southbound Lake Shore Drive.

Companies "A", ”B", "C" and "D" will follow
the assignments shown on the Phase II Assign-
ment Chart.

North out of Lower Level Tunnel at McCormick
Place, continuing North on Lake Shore Drive
to Balbo Drive, West on Balbo Drive to Michi-
gan Avenue. South on Michigan Avenue to the
front of the Hilton Hotel.

SPECIAL INSTRUCTIONS:

 

T—Car operated by Ptlmn. E. Simale #5890 TA#2
and J. Skarupa #7411 TA#2 at the end of Phase
II will move to Southbound Lake Shore Drive
Opposite Buckingham Fountain and stop South-
bound Lake Shore Drive traffic on Radio Com-
mand on City Wide III.

T-Car stationed at Columbus Drive opposite
the south curb of Congress Street operated by
Ptlmn. F. Pancaro #8099 TA#S and F. Haggemann
#2583 TA#S will shut off Southbound Traffic
on Columbus Drive on Radio Command City Wide
III.

T-Car operated by B. Szarley #9149 TA#3 at
the end of Phase II will move to Waldron
Drive and Northbound Lake Shore Drive and
will prevent traffic from entering Northbound
Lake Shore Drive on Radio Command City Wide
III.

98

DS/FS 8.0. 64-14

PHASE III SPECIAL INSTRUCTIONS CONT'D
CON'T

 

T-Car stationed at Waldron Drive and South-
bound Lake Shore Drive, at the end of Phase
II will move to Northbound Lake Shore Drive
just south of the exit of the Lower Level
Tunnel of McCormick Place and stop traffic at
that point on Radio Command City Wide III.

3-W Officers A. Sabatello #5097 TA#l and J.
Burlinski #5164 TA#l, at the end of Phase II,
will move to 14th Boulevard and Northbound
Lake Shore Drive and will prohibit traffic
from entering Northbound Lake Shore Drive
when Traffic is cut off.

Intersection Control Ptlmn. F. Rizer #11454
TA#l stationed at Eastbound Achsah Bond Drive
and Northbound Lake Shore Drive will move to
the Westbound Lanes of Achsah Bond Drive and
stop traffic when Motorcade approaches.

Intersection Control Ptlmn. R. Maher #4948
TA#S stationed at the point north of Chicago
Natural History Museum Parking Lot where
Northbound and Southbound Lake Shore Drive
traffic merges, and will prevent any vehicles
from entering Northbound Lake Shore Drive
when motorcade is approaching.

Intersection Control Ptlmn. F. Carollo #2909
TA#S stationed at the east end of Roosevelt
Drive at Northbound Lake Shore Drive will pre-
vent any vehicles from entering Northbound
Lake Shore Drive when Motorcade is approaching.

Companies "A", "B", "C" and "D" will follow
the assignments shown on the Phase III As-
signment Chart.

PHASE IV Motorcade vehicles will again be parked at

‘—-_‘—_— the west curb of Michigan Avenue facing
north. North on Michigan Avenue to Balbo
Drive. East on Balbo Drive to Columbus
Drive. South on Columbus Drive to 14th
Boulevard. East on 14th Boulevard to North—
bound Lake Shore Drive. North on Lake Shore
Drive to Achsah Bond Drive. East on Ashsah
Bond Drive to temporary roadway. South on
temporary roadway to North fence of Meigs
Field and through to Helicopter.

99

DS/FS 8.0. 64-14

PHASE IV
CON'T

 

PRE- EVENT
CONFERENCE:

 

SPECIAL INSTRUCTIONS:

 

 

T-Car stationed at Columbus Drive opposite
the south curb of Congress Street operated
by Ptlmn. F. Pancaro #8099 TA#S and F.
Haggemann #2583 TA#S will shut off Southbound
Columbus Drive traffic on Radio Command City
Wide III.

T-Car operated by Ptlmn. E. Simale #5890 TA#2
and J. Skarupa #7411 TA#2 stationed at South-
bound Lake Shore Drive and Roosevelt Drive,
just north of the Passerel will prohibit all
traffic from entering Northbound Columbus
Drive and/or Southbound Lake Shore Drive on
Radio Command City Wide III.

T—Car stationed at Northbound Lake Shore
Drive and 14th Boulevard operated by Ptlmn.
E. Merkl #10482 TA#4 and C. Hickey #11446
TA#4 will stop all traffic on Northbound Lake
Shore Drive on Radio Command City Wide III.

T-Car stationed on Balbo Drive 100 feet east
of Columbus Drive operated by Ptlmn. B.
Szarley #9149 TA#3 will stop all traffic on
Radio Command City Wide III.

3—W Ptlmn. A. Sabatello #5097 TA#l will keep
traffic Lanes open on Waldron Drive from
Southbound Lake Shore Drive to Northbound
Lake Shore Drive.

3—W Ptlmn. J. Burlinski #5164 TA#l will keep
barricade area in the Northerly Island Parke
ing Lot Clear of parked vehicles.

Companies "A", "B", "C" and "D" will follow
the assignments shown on the Phase IV As-
signment Chart.

A pre-event conference will be held At Gate
"0" office, Soldier Field at 1400 Hours on

the 23rd of April, 1964, for the following;
Deputy Chief Ascher, Captains commanding
Companies "A", "B", "C" and "D", and personnel
assigned to the four (4) T-Cars.

DS/FS 8.0. 64-14

100

GENERAL OPERATION

OF DETAIL:

 

 

TOUR OF
DUTY:

Each Company (Sub-sector) of the Detail will
be under the command of a Captain. Each
Company has an assignment to be covered in
each of the four phases. In addition to the
Companies there will be four T-Car details
for the purpose of receiving Radio Messages,
ordering traffic cut-offs at certain points,
and activating those cutoffs when so notified.

Because of the Limited Time available between
the end of Phase I and beginning of Phase II,
a bus and prisoner van will transport those
companies most distant from their Phase II
assignments.

Officers along the Motorcade Routes will face
away from the Street.

Telephone and Toilet facilities will be'
available for Police Officers on Thursday 23
April, 1964, from 1500 to 2200 Hours at Gate
"0", Soldier Field.

Police Officers assigned to this Detail may
park their vehicles in the northwest corner
of the South Soldier Field Parking Lot.
Entrance to Lot should be made off 16th
Street thru the northwest gate.

Unless otherwise ordered by Chief Doherty,
all personnel assigned in this order will re-
port at 0700 Hours on Friday, 24th April,
1964, and take their positions as in Phase

IV immediately after inspection and Roll
Call. Personnel will be dismissed only after
the Presidential Party has left and then upon
order of Chief Doherty.

Thursday, 23 April, 1964 constitutes a Tour
of Duty.

Friday, 24 April, 1964, does not constitute
a Tour of Duty.

101

DS/FS 8.0. 64-14
RECAPITULATION:
1 Chief

 

 

2 Deputy Chiefs
4 Captains

8 Lieutenants
32 Sergeants
556 Patrolmen.

Total personnel assigned on this Detail 603

 

Deputy Superintendent
Bureau of Field Services

 

 

INFO: Superintendent of Police
Deputy Superintendents, Bureau of
Staff and Inspectional Services
Planning Division
Mail Room Section

pISTRIBUTION:

 

 

Commanding Officers, Divisions
Areas, District and/or Units,
Bureau of Field Services.

BUREAU OF FIELD SERVICES SPECIAL ORDER NO. 64-14

21 APRIL, 1964

102

BUREAU OF FIELD SERVICES SPECIAL ORDER 64-14
PHASE I ASSIGNMENTS

 

 

 

 

 

 

 

 

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APPENDIX C

INFORMATION FOR STADIUM POLICE OFFICERS

CASUALTY OR ILLNESS CASES: Victim should be taken quickly to
the nearest First Aid room where medical care, inhalators,
etc. are available. Physicians should not be summoned
into the stands nor a public announcement for a doctor
made, since there is nothing they can do in the stands
which cannot be done quicker and more effectively in the
first aid rooms. Responsibility for all victims will be
assumed by the First Aid Room personnel when they are left
there. If the victim is apparently having a heart attack,
the inhalator squad can be summoned to the scene if thought
advisable.

FIRST AID ROOMS: West side concourse under west
main stands (5-0321)

East side concourse under east
main stands (5-1868).

INHALATOR RESUSCITATOR: At each First Aid Room.

STRETCHERS: Stretcher and blankets located at
each concession stand at top and
rear of main stands below the
upper decks. Telephones are also
located at these locations for
summoning an inhalator.

ELEVATOR: Located on the west side, center,
of Stadium. Access may be ob-
tained by knocking on the doors to
the Press Box.

EMERGENCY MESSAGES: The Stadium Switchboard, will not an-
nounce any message except those authorized by the Police
Booth. (5-0323 or 5-7673)

LOST CHILDREN: Take to Police Booth on west concourse under
section 20.

PRISONERS: Take to Police Booth where a MSU supervisor will
assume custody and provide transportation. Check with the
MSU Department of Public Safety (355-2221) to make arrange—
ments for prosecution in Lansing Township Justice Court.
Drunks may be released if the arresting officer so desires.

107

108

DRUNKS: The university ordinance prohibits possession of
alcoholic beverages on its property. Persons flagrantly
displaying alcoholic beverages or annoying other spectators
should have the beverages confiscated and taken to the
Police Booth. If they object to surrendering the beverage

they may be ejected from the Stadium or arrested as circum-
stances require.

RADIOS & MOVIE CAMERAS: Big 10 rules prohibit these items
in the Stadium during the game. They may be checked at
the Police Booth for return after the game ends.

POLICE CONTROL: Police control of the Stadium is adminis-
tered from the Police Booth where a university police
supervisor is on duty at all times. Police assistance may
be summoned by calling 5-0323 or 5-7673 (the police booth).

COFFEE: Free coffee is provided by the university police in
a police lounge located under the west stands just north
of the west First Aid Room.

POLICE PARKING: University police cars will be parked at
the southwest corner of the Stadium under the stands.
Visiting police cars will be parked in the vertical parking
stalls along the west side of Tennis Courts south of the
Stadium or at the southeast corner of the Stadium.

FOOTBALL TELEPHONES: Desk Officer-University EMERGENCY -
lg; - 5-2221.
Police Booth-Unlisted 5-7673; listed
5—0323.
First Aid Rooms-west 5-0321; East-5-1868,
Tunnel Ent. (car #8) 5-0325; Home team
dressing room same.
Concessions (Stretcher locations) NE
Upper Deck 5-2249; NW Upper Deck 5-2280;
SE Upper Deck 5-2247,8; SW Upper Deck
5-7671.
Ticket Office, West - 5-7699
COMMAND POST (unit #32) 5-7671

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APPENDIX D

MODEL FORMAT AND CHECKLIST OF A PLAN
FOR PROVIDING SECURITY SERVICES

AT A SPECIAL EVENT

The following model is presented as an aid to the
police administrator charged with the responsibility of
preparing a plan for providing security services at a
special event involving the assemblage of large numbers of
people. Although the model outlined here will not fulfill
the planning requirements for each and every special event,
the recommended format and basic policies and procedures

listed should be easily adapted to meet any specific planning

situation.

I. HEADING
l. Designation of issuing agency.
2. Title of plan that identifies the project.

3. Authentication by an official of the issuing agency.

II. SITUATION
1. General description of the special event.

2. Place, date, and time of the special event.

llO

III.

IV.

111

3. Significant circumstances of the special event.
a. V I P's scheduled to attend.
b. Special press or news coverage.
c. Emotional or explosive nature of the event.

4. Assumptions applicable to the special event.

a. Number of persons to attend.
b. Actions of those in attendance.
c. Number of automobiles involved.
d. Number and types of commercial conveyances
involved.
e. Weather conditions before, during, and after
the event.
f. Probable police problems.
MISSION
A clear, concise, statement of the task of the agency
and its purpose or objective.
OPERATIONS

1. General concept of operations.

a.

Responsibilities of all participating agencies
clearly outlined.

Special over—all instructions.

(1) Standards of performance.

(2) Inspection procedures.

(3) Jurisdictional boundries.

112

2. Task assignments.

a. Officer in Charge-Traffic Control.

(1)
(2)

(3)

(4)

(5)

(6)

Number of officers to be assigned.
Number, location, and time schedule of
traffic control points and patrol areas.
Location of temporary detours, one-way
streets, and no parking areas.
Designation and samples of special vehicle
stickers issued for the event.

Special instructions for controling:
(a) Transient traffic.

(b) Residential traffic.

(c) V I P vehicles.

(d) Official vehicles.

(e) Commercial/Public conveyances.

(f) Participant or spectator vehicles.
(g) Concessionaire vehicles.

(h) Emergency vehicles.

(i) Pedestrian traffic.

Special equipment required.

(a) Traffic batons.

(b) Fluorescent clothing.

(c) Portable loudspeakers.

(d) Emergency warning lights.

(7) Reports required.

b. Officer in Charge—Parking

C.

113

(1) Number of officers to be assigned.

(2) Location and capacity of parking areas.

(3) Time Schedule for parking detail.

(4) Designation and samples of special parking

permits issued for the event.

(5) Special instructions for parking:

(a)
(b)
(C)
(d)
(e)
(f)

V I P vehicles.

Official vehicles.
Commercial/Public conveyances.
Participant or spectator vehicles.
Concessionaire vehicles.

Emergency vehicles.

(6) Special equipment required.

(a)
(b)
(C)

Traffic batons.
Fluorescent clothing.

Emergency flood lights.

(7) Reports required.

Officer in charge-Criminal Activities.

(1) Number of personnel to be assigned.

(a)
(b)

Male.

Female.

(2) Special qualifications required.

(a)

(b)

Experience in detecting pickpockets,
morals offenders.
Familiarity with known gamblers,

narcotic offenders, hoodlums.

d.

(3)
(4)

(5)

114

Assignment locations and duty hours.
Special instructions.

(a) Wanted bulletins.

(b) Arrest procedures.

(c) Location of supervisors.

Reports required.

Officer in Charge-Emergency Force.

(1)
(2)
(3)

(4)

(5)

Number of officers to be assigned.

Assignment location and duty hours.

Special qualifications required.

(a) Physical requirements-height, weight,
age.

(b) Training in riot control tactics, mob
psychology, unarmed defense, use of
riot clubs, chemicals, or special
weapons.

Special equipment required.

(a) Individual protective equipment—steel
helmets, gas masks, protective clothing.

(b) Offensive equipment-riot clubs, weapons,
chemicals, waterhose.

Special instructions.

(a) Emergency force to be committed on
orders of Chief or Deputy Chief only.

(b) Priorities of force will be used as

established in SOP.

115

(6) Reports required.

e. Officer in Charge-Maintenance Services.

(1) Sign posting and removal detail.
(a) Location and type of required
temporary signs.
(b) Time schedule for posting and removing

temporary signs.

(2) Barrier detail.

(a) Location and type barrier required-
barricade-rope lines.
(b) Time schedule for installing and re-
moving barriers.
(3) Impounded vehicle lot detail.
(a) Location and hours of operation.
(b) Special instructions, release
procedures.
(4) Police tow vehicle detail.
(a) Number of tow vehicles assigned.

(b) Location and duty hours.

(c) Special instructions.

3. General information.
a. First Aid Stations.
(1) Location.
(2) Type service available.
b. Ambulance Service.

(1) Location.

116

(2) Procedure for police request—through
police command center.

Lost and Found Property. Will be reported to,

or turned in to, police command center.

Missing Persons. Will be reported to police

command center.

Fire Service.

(1) Location.

(2) Procedure for police request-through
police command center.

Impounded Vehicles.

(1) Authority.

(2) Procedure-request tow vehicle through
police command center.

(3) Location of lot.

Location of Comfort Stations.

Detention Facilities.

(1) Location.

(2) Procedures.

Press Releases. Information for the press

will be released from the police command

center only.

Passes and Credentials. Description and

samples of those issued to:

(l) Officials.

(2) Press.

V.

117

(3) Vendors.
(4) Persons authorized access to reserved or
exclusion areas.
k. Maps, Diagrams, Sketches. Appropriate issue
indicating:
(1) Traffic pattern.
(2) Parking plan.
(3) Police command center.
(4) Police posts.
(5) Reserved or exclusion areas.

(6) Location of key facilities.

COMMAND AND COMMUNICATIONS

1.

Command.

a. General statement of command relationship for
the operation.

b. Contemplated shifts of command during the
operation.

c. Location of the commander.

d. Location and operation of the police command
center.

Communications.

a. Telephone.
(1) Location of telephone or call boxes.
(2) Listing of key telephone numbers.

b. Radio.

(1) Assigned frequencies-alternates.

118

(2) Operating instructions.

(3) Code words-code names-distress calls.

VI. MISCELLANEOUS
1. All commanders will become familiar with the en-
tire contents of this plan.
2. This plan is effective for planning on receipt and
for implementation on order.

3. Receipt of this plan will be acknowledged.

(Signed)

 

Commander

ANNEXES:
DISTRIBUTION:

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