Journal of Criminal Law and Criminology

Volume 45 | Issue 2 Article 16

1954

Police and Human Relations in Management

John P. Kenny

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John P. Kenny, Police and Human Relations in Management, 45 J. Crim. L. Criminology & Police Sci. 222 (1954-1955)

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 POLICE AND HUMAN RELATIONS IN MANAGEMENT

JOHN P. KENNY

The author has been an Associate Professor of Public Administration, University of

Southern California, since 1950 and active in the field of law enforcement since 1942
when he was first appointed to the Berkeley (California) Police Department. Mr.
Kenney in 1947 organized and directed the Police Training Program at Visalia College,
Visalia, California, and was a consultant on Juvenile Control, California Youth
Authority, 1947-50. He has written several papers and monographs and is coauthor
with Dan G. Pursuit of a book, Polie Work With Juveniles (in press).-EnroR.

Police administration is changing. The complexity of urban life with its increasing
populations, increases in crime, increasing traffic problems, and increased demands
on the tax dollar limiting the amount available for police services has caused chiefs of
police to seek means of providing more effective and efficient service with limited
personnel. In addition, police departments are no longer strictly law enforcement
agencies but by evolution have become service agencies supplying a multitude of
services to the people. New techniques in police work are being developed and ap-
plied; better public relation programs are in evidence, and better personnel is being
sought by improved recruitment and selection methods and a greater emphasis on
training. Less concern, however, has been evidenced in bettering the management
practices employed within departments. Experience in industry and in public agen-
cies, particularly in the military, other than the police, indicate that agency efficiency
and effectiveness may be increased by introduction of a human relations approach
to management within an agency.
Since the police are placed in an authoritarian position by powers given them in
law, it seems only natural that they have evolved as agencies accepting character-
istics of authority and control for application to their own organizations. Acceptance
of the military approach to management has led to a "command and obey" approach
to supervision and control. Study of the science of human relations in public admin-
istration indicates other methods of supervision may be more effective even in mili-
tary situations. More important seems to be the effect of relationships developed in
small informal groups. 1 Many management factors influence the development of
relationships in the small informal groups. It will be the purpose of this paper to
discuss some of them and how they may be used in management of a police depart-
ment.
A human relations approach to management implies treatment of workers by
supervisors with respect and understanding instead of dominating by fear and threats.
Industry has accepted this approach over the past few decades realizing increased
output, better satisfied workers, and better employer-workers relations.' It would

I Morton Grodzins, "Public Administration and the Science of Human Relations," Public Ad-
ministration Review. Vol. XI, No. 2, Spring 1951, p. 88.
2 Parker, W. E., and Kleemeier, R. W., Human Relations in Supervision, New York, McGraw-

Hill, 1951, p. 3.
 POLICE AND HUMAN RELATIONS IN MANAGEMENT

seem that application of the human relations approach within a police agency would
result in more effective police service through increased efforts of the individual
officers, the hypothesis being that a satisfied worker will extend himself to do a better
job
The trend in the human relations field has been toward more democratic action
within an agency. It has been found that participation of workers at all levels of
the hierarchy in policy and decision making will increase an organization's effective-
ness and that, as in government, men are best ruled by democratic methods.3 Adop-
tion of democratic procedures in the police service does not imply relinquishing of
command and control concepts necessary for effective organization; rather, on the
presumption that all officers can make significant contributions toward better poli-
cies and procedures if they are heard and their knowledge and experiences are pooled,
better police work will result.
Every officer in a department, from the chief of police to the new recruit, should
participate if a human relations program is to be effective. 4 Of necessity, the chief
must take the lead. The policies, programs, and examples which he initiates become
the guides for action by all other officers. His respect for and understanding of the
problems of the officers becomes a means by which they may be solved, higher mor-
ale, mutual respect, and faith resulting.
Through the command group, lieutenants and above in rank, the chief disseminates
throughout the department his policies and ideas for application. It is that group
which in essence holds control over a department. Initiation of a human relations
program must be through them, with their full support and understanding obtained.
They are the link between the sergeants and the chief; they train and assist the ser-
geants in all operations and give up some of their authority so the sergeants may have
freedom to act.5 It is these officers in the department who can make or break a hu-
man relations program.
The police sergeant is probably the key to success of any police human relations
program, the same as he is considered to be in getting the police job accomplished.
It is he who conveys policies, procedures, and assignments from above to the police-
men; he who informs the command group of accomplishments, setbacks, problems,
and grievances of the policemen; he who is the link between the policemen and com-
mand group above. It is his responsibility to develop a wholesome and loyal attitude
in the policemen toward their job, themselves, and toward other officers in the de-
partment. Instilling of job satisfaction in the patrolmen becomes his responsibility.
If changes are to be made in departmental practices or procedures, it is the sergeant's
job to change the policemen's attitudes and to condition them for the changes.
Success of a human relations program comes through its understanding. The ele-
ments or concepts are not complex. Most are commonplace and merely require
recognition and an understanding of why they affect the work of people in a depart-
ment.
In order to do their best jobs, supervisors must know men. One of the first and
3
Ibid., p. 11.
4 Pfiffner, John M., The Supervision of Personnel-Human Relations in the Management of
Men, Prentice Hall, New York, 1951, Chapter XIV.
5Parker and Kleemeier, op. cit., p. 19.
 JOHN P. KENNY [Vol. 45

most obvious things is to learn that people are different, that each policeman is
different one from the other, have different aptitudes, backgrounds, likes and dis-
likes, and different personalities. These differences should be recognized and used
to the advantage of the department. Advantage comes from assigning officers who
can get along with juveniles to the juvenile unit, and officers who are good investi-
gators to the detective division, as examples.
It has been generally accepted that the "driver type" supervisor cannot easily
get work done effectively and efficiently. A good supervisor knows men as individuals,
intimately and well. He has an understanding of their lives both within and without
the organization and uses this knowledge to an advantage in supervising men under
him. No officer has one personality on the job and one at home.'
Fundamentally, people differ because of heredity and environment. There is some
question as to how much a person's inherited qualities can be changed. It has, how-
ever, been generally accepted that environmental aspects of human personality can
be changed through appropriate training. If a supervisor is to be effective, he should
understand which traits of a person can be changed and which probably cannot. An
understanding of these factors makes possible a better approach to the problems of
officers at all levels, and conditions operations of a department and the training pro-
gram it is to use. It should be pointed out here, however, that all supervisors cannot
be expected to be diagnosticians, but through training there can be developed in
them an understanding of some of the basic reasons of why people differ in order
that they may be more effective.
Because people's present way of life is predicated upon environment and inherited
factors, change must come slowly if at all. An officer comes to the police service with
certain beliefs and attitudes toward the job as well as toward other things in life.
It is these beliefs and attitudes which must be recognized and dealt with in order to
assimilate a person into the police service. A supervisor can do much in changing
these belief systems and attitudes if he approaches the job properly. If the sergeant
and other ranking officers understand the behavior of people in general; know officers;
work through persuasion and a facing of the facts rather than through fear and
threats; work through any natural or indigenous leader of the organization; plant
ideas and let them grow; and know people's feelings and sentiments, there is a much
better chance that change can be accomplished.7
In the police service, there are several factors which affect cooperation between
divisions and units and coordination of all units in a department for effective ac-
complishment of work. In some departments the detective unit becomes enveloped
in an atmosphere of "cloak and dagger" work, insulated from other division. Detec-
tives adopt superior attitudes toward their work, giving the impression that only
.they as specialists can perform their jobs. They seek little help from other officers.
nor do they give any in return. Other policemen in the department resent the detec-
tives' attitudes, and work of the department suffers. A similar situation may develop
in relationships between motorcycle traffic personnel and policemen in other units.
Motorcycle officers usually draw additional pay, wear distinctive uniforms, and
Ibid., p. 43.
7 Pfiffner, op. cit., p. 184.
19541 POLICE AND HUMAN RELATIONS IN MANAGEMENT

develop a high "esprit de corp" because of these differences. The result is usually
decreased over-all effectiveness of police work. If the command group of the depart-
ment understands these differences in thinking, it is much easier to accomplish change
and to develop cooperation and coordination among the different groups 8
People universally resist change in policies and procedures of the agency in which
they work, and policemen are no exceptions. Change in a report form, general change
in shift assignments, or a major change, such as from two-man to one-man patrol
cars, are basis for considerable resistances and discontent. The resistance and dis-
content should be anticipated and provided for in advance. Adequate advance in-
formation of the contemplated changes should be given; a full explanation of reasons
for the contemplated change provided. Officers should be interested in and stimu-
lated to participate in the changes, and they should be assured that there is no threat
to their own personal security.9 Participation of all officers in planning can diminish
ill effects of change.
There are two settings for human relations in management of a police agency, the
formal and informal or social organization. Formal organization of a police depart-
ment refers to departmental structure and its use in carrying out the police function.
There is no question but that sound organization facilitates effective direction, co-
ordination, and control to achieve the police purpose. However, the formal organiza-
tion in and of itself usually does not accomplish the job. The existing social system
must also be considered. This social system may be partly formal and partly informal.
and it may be good or bad for the agency, but it nevertheless exists.1"

INFORMAL ORGANIZATION"
In the informal or social organization there are both healthy and unhealthy aspects.
The unhealthy aspects manifest themselves in such diverse elements as rivalry
among officers of the same rank which creates tension, cliques of officers, dissatisfied
officers, and informal leaders. The healthy aspects are exemplified by team work
which increases effectiveness, a social situation which makes people happy at work,
and cooperation which gets the job done when formal organizations fail.12 Nu-
merous examples are available in almost any organization of both the healthy
and unhealthy aspects. It is not clear just how much or how little informal organiza-
tion is needed to maintain a police agency or any agency in good health. Informal
organization may help in getting the job done, if formal organization is faulty; on
the other hand it may be necessary where the social needs of the employee are not
satisfied on the job or where the formal organization in and of itself may be good but
the methods of application are not satisfactory.
In a police agency informal organization manifests itself in many situations. Dis-
regard for policemen's off duty time, demands for excessive hours of overtime with-
out pay, or constant pressure from supervisors may result in the development of a
8
Ibid., p. 188.
9Ibid., p. 190.
10Ibid., p. 129.
11Ibid., (See Chapter VIII for a comprehensive discussion of informal organization.)
12Ibid., p. 129.
 JOHN P. KENNY [Vol. 45

patrolmen's club or some other type of organization to resist inequitable practices.

Perhaps a more serious manifestation is inefficient or sloppy work caused by improper
supervision or poor organization. For example, officers may fail to make reports on
minor cases, make inadequate reports on major cases, and do as little routine patrol
as possible if they feel they receive no credit for a job after it is completed."
Another universal aspect of informal organization is the struggle for power. In a
police department this is as true as in any type of agency. It is generally accepted in
our society that success comes via the promotion route on a job. Officers of lower
rank vie for favored positions or jockey for recognition in order to achieve promotion.
This creates a competitive spirit, and if senior officers show favoritism, the results
may be serious.
Another common phenomenon is the development of cliques. A clique may not
be subversive in nature nor underground in its operation, but if the proper atmos-
phere does not prevail, it may become so. In fact often there are healthy cliques lead-
ing to increased productivity and output of work. An example of a healthy clique
in a police organization is three or four officers assigned to contiguous beats working
out a comprehensive informal cover plan for apprehending burglars, window peepers,
or other criminals who are operating in their areas. Such cliques may develop with
complete disregard for established rules and regulations but nevertheless produce
excellent work.
A supervisor may become the key figure in controlling or directing the informal
organization activities. To be an effective supervisor one must understand how people
group together naturally in order that he may weld his group into a natural working
team. All supervisors, from the sergeant up, should try to achieve a unity of feeling
among policemen under their commands in order to do better the police job. Good
supervision is the key to achieving team work.
Another important factor in human relations is status. Status refers to the posi-
tion of the individual as it is expressed by attitudes, opinions, and regards of the
members of the group to which one belongs. It may be achieved formally by promo-
tion or informally by becoming an informal leader. In a police department it mani-
fests itself by such diverse elements as seniority, graduation from uniform into a
plain clothes detail, by obtaining assignment to the motorcycle squad, or even by
being the officer to whom other officers come with problems. And of course, the stars,
bars, and stripes signifying different police positions are important status symbols
for the police.
Solutions vary, but some examples include calling all officers of a lower rank police-
men, making assignments from the patrolman or sergeant ranks to the detective divi-
sion on a non-permanent basis, and by allotting no extra pay for motorcycle traffic
duty, making that assignment less desirable. In the main, the status problem may
be coped with by understanding that people need recognition and prestige to be
motivated to do a better job. A word of praise, an additional day off, or something
similar, provided when an officer makes a good arrest or does an outstanding piece
of work may suffice. In other cases it may require additional recognition.
13G. Douglas Gourley, "Police Discipline," Journal of Criminal Law and Criminology, Vol. 41,
No. 1, May-June 1950, p. 92.
1954] POLICE AND HUMAN RELATIONS IN MANAGEMENT

COMMUNICATIONS
It has generally been agreed by top management in industry that an informed work
force and the public are the best guarantees for understanding and preserving of
our varied way of life.' 4 Good communication may be accomplished by management
informing workers, through accurate reports, solicitation of suggestions, use of bulle-
tins, and other media. It should also make available complete information on the
departmental personnel program. The personnel program is of perhaps greater con-
cern to the average officer than is usually suspected.
The chief of police may insure an informed work force by preparation of an accurate
and complete departmental manual, showing duties, assignments, functions, and
responsibilities of the various units and even the various officers within the depart-
ment. The manual should be kept up to date with changes and new procedure which
may be initiated. A regular bulletin from the chief's office is also an effective tool
for communication. In this bulletin the chief can inform the officers of general changes
which are contemplated or are being made, inserting a few articles on individual
officer accomplishments, give a picture of the departmental work, and in general,
use it as a departmental organ for informing the work forces of the activities of the
department. This latter was recently done by a small department in Southern Cali-
fornia increasing the morale and interest of the officers considerably.
If changes in departmental procedure are anticipated, it is well that the officers
are informed well in advance. It is tragic for the officers to hear from any other source
than the chief's office or the department that the changes are being contemplated.
To insure acceptance of the change, the chief should work through the immediate
supervisors, and especially, if changes are to affect the officers in the field, the ser-
geant should be utilized as the key man for interpretation. The sergeant should also
be the key man to quell rumors and to avoid development of inaccurate information
circulation. He should give out to the officers accurate information on what is being
contemplated..
On the other hand, a channel should be developed for use of the officers in trans-
mitting information from their position to the top, if necessary. Officers need as
direct a line as possible. They can either work through the chain of command, with
a procedure in effect to assure that their complaints or suggestions will reach the
proper authority; or, if this has broken down, perhaps it may be advisable to estab-
lish some line which will by-pass the chain of command. To insure participation of
officers at the lower level, top management must assume responsibility for having
no secrets and for keeping the officers completely informed. In essence, good faith
should be established on both sides.
Every department has its share of officers in the hierarchy who dam or block in-
formation from below. As indicated earlier, this should be avoided at all costs. There
is a tendency of some supervisors to sift information deliberately, keeping that in-
formation from above which might affect their positions. Middle and top supervisors
should be aware of this sifting and avoid it wherever possible. Middle supervisors
14Pfiffner, op. cit., p. 30.
 JOHN P. KENNY [Vol. 45

should also avoid sifting information and not passing down to the officer at the
5
lower level information which he should have.1
In communications, one thing to avoid is that which has in the past been termed
the "open door policy." This does not mean that the chief of police and the higher
officers should not be approachable: they should. There is, however, a natural ap-
prehension of authority, pressure of the top executive type atmosphere, preoccupa-
tion of management with its own quirks which make the open door approach not
too satisfactory for the worker. An officer will hesitate to go into the chief's office
even though the door may be open and the chief there. First, he will be ill at ease
because of the boss complex he may have; also, he may have a certain fear of dis-
turbing some important work which the chief of police may be doing. It is much
better to provide a system which fosters a free interchange of ideas through an ap-
propriate medium, even to having regular hours set aside for individual office con-
ferences.
A development of a system which fosters free interchange of ideas may counteract
the grapevine or rumor medium of transmission of bad information. The "grape-
vine" is a universal phenomenon. 16 It may be used for good purposes, but more often
it is used with bad effects. Facts will discourage any bad effect which rumors of
situations may cause. In essence, communication is really the key to successful hu-
man relations. Communication which develops a mutual faith between the super-
visors and the workers is the most effective.

SUMARy
Acceptance of the democratic approach to human relations in police work must
come. Advancements in the technological and scientific ways of police work, in the
techniques of administration, and in an understanding of the criminal mind is not
enough. Police work is more than work with criminals or apprehending them, or
administering an organization. Police work is a public service. To be effective and
to meet the needs of the public, an efficient organization must be developed, an
organization staffed with personnel who have an understanding of the human prob-
lem, but more important, have an understanding of their own problems and cope
with them adequately before trying to solve the problems of people who are in trouble.
The human relations approach to organization and management of a police depart-
ment is a must, and the sooner it is accepted and applied, the quicker police service
will reach the status it deserves, that of a recognized profession.
15Ibid., p. 150.
16Ibid., p. 156.