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CHAPTER 5. POLICING SERVICES

26\. SCOPE OF POLICING SERVICES. As used in this Chapter, the word

\"policing\" embraces the entire range of services which are

devoted to police-type functions (e.g., patrolling, guarding,

apprehension, restraint, arrest, and investigation), regardless

of the nature of the method of their delivery. The term thus

includes both regular Police Department services and protective

services provided by \"security personnel\" (i.e., personnel other

than those of the regular Police Department, whose function is to

protect one or more specific housing properties, such as Housing

Police Forces, Management and resident patrols, contract guard

services, stationary guards, doormen, lobby monitors, etc.).

This broad usage of the word \"policing\" reflects the importance,

in planning a residential security program, of surveying the

project in terms of total policing needs and the total range of

options which might be used to meet those needs.

27\. THE ROLE OF THE POLICE DEPARTMENT. Consideration of policing

services for multifamily housing must begin with examination of

the role of the regular local Police Department. One

fundamental point deserves heavy emphasis here: The primary

responsibility for policing services in all HUD-assisted

multifamily housing rests squarely with the local Police

Department. Neither public housing nor HUD-insured housing

projects are enclaves of Federal responsibility. On the

contrary, HUD-assisted projects are intrinsic to the community

as a whole, and are entitled to full Police Department services,

except to the degree (if any) to which Management and the local

government may expressly agree to some alternative policing

arrangement. Maximum reliance upon the regular Police Department

avoids the waste of resources and conflicts in operations which

tend to result from fragmentation of the community\'s total

delivery system for policing services. Where the nature of a

specific policing service requires highly professional

organization, training, discipline,and supporting services and

facilities, the Police Department is ordinarily the best entity

to handle it. Any deviation from these principles should be

accepted reluctantly, and only to the extent that it can be

clearly shown to promise better protection for the project and

its residents.

28\. POLICE DEPARTMENT DETERRENCE OF CRIME AND VANDALISM. While

police arrests constitute a strong factor in deterring further

offenses, they are of themselves an inadequate measure of Police

Department success. Management must stress the primacy of

deterrence and the need for a Police Department strategy which

will either discourage attempts at crime or detect and stop them

before they can be consummated. Accordingly, a highly visible

police presence and thorough surveillance should be paramount

considerations for Police Department operations in

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the project. Police officers sometimes prefer to limit

their activities to motorized patrols along public streets.

They tend to be reluctant to engage in \"vertical patrolling\"

(i.e., patrolling within common areas of apartment buildings)

or to provide stationary guards within residential buildings

and their grounds. However, where security problems are

serious, these methods might well be suggested to be appropriate

and cost-effective uses of Police Department manpower.

9\. OBTAINING POLICE DEPARTMENT SERVICES. Management\'s ultimate

objective should be to obtain from the Police Department all of

the policing services needed for the property and its residents.

Where additional services and/or changes in existing services are

needed, the following steps are recommended:

a\. Preparation. Before putting its full case before police or

other local officials, Management should be well prepared to

justify its demands for additional and/or different services.

While contacts with police officials should begin early in

the planning process (in order to obtain Police Department

assistance in the planning effort itself and to begin to

build a working alliance), full consideration can be given to

the Police Department\'s role only after Management has

completed a relatively comprehensive factual analysis. See

Chapter 3, subparagraph 12b above. Before requesting

additional police services, Management should be able to

demonstrate that it has made reasonable efforts to remedy the

project\'s problems through non-policing measures (e.g.,

reasonable improvement of the project\'s physical security

features).

b\. Requesting Additional and/or Different Police Department

Services. The project\'s policing needs are matters for frank

discussion between Management and Police Department

officials, and Management must be forceful in pressing its

demands. However, the best initial approach is one of

amicable persuasion, with promise of full cooperation on the

part of Management and the residents\' organization.

Management is advised to place its case before senior Police

Department officials in a manner which will command their

serious consideration. One or more conferences, backed up

with a thorough memorandum describing the facts and proposed

actions,are recommended. In such conferences, Management

should be represented by executive-level personnel (plus its

consultants, if any). It may be helpful to have a

representative of the residents\' organization attend such

meetings. If a Criminal Justice Coordinating Council (CJCC)

exists in the locality, it may also be advisable to bring

that body into the matter at this and subsequent steps. See

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that body into the matter at this and subsequent steps. See

paragraph 48 below.

c\. Reallocation of Police Department Resources. If Management

concludes that Police Department manpower or other resources

are poorly allocated, from the viewpoint of the project and

its residents, it should submit to police officials a

detailed proposal for a more equitable and effective

reallocation.

d\. Appeal to Other Local Officials. If, because of funding

constraints, or any other reason, the Police Department is

unable or unwilling to satisfy the project\'s needs for

additional and/or different policing services, Management

should not resign itself to that state of affairs. Instead,

it should carry a vigorous appeal to other appropriate

officials in the local governmental structure (e.g., CJCC,

Mayor, City Council). While it is highly desirable that such

an appeal be a cooperative effort on the part of Management

and the Police Department, if there is disagreement between

them, Management should nevertheless give serious

consideration to pressing its own demands. In either event,

the support of residents and the wider community will greatly

strengthen Management\'s case.

e\. Continuing Efforts. If all efforts to obtain additional

and/or different Police Department services fail, Management

may be forced to turn to the use of security personnel (i.e.,

non-Police Department services), as discussed in paragraphs

31 through 35 below. However, even after such measures are

instituted, Management should continue its efforts to obtain

additional and/or different Police Department services, with

the aim of reducing the need for security personnel.

30\. SPECIAL POLICE DEPARTMENT OPERATIONS. Where the project\'s needs

cannot be met within the framework of regular Police Department

operations, possibilities for special operational arrangements

(still using Police Department personnel and supervision) should

be explored. Such special operations might be funded under the

Police Department budget, or with additional funds pursuant to an

agreement among Management, the Police Department, and the local

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governing body. The following are among the special operational

techniques which should be considered:

a\. A special Police Department force might be detailed for

service as patrolmen and/or stationary guards within one or

more large projects. This arrangement allows creation of a

force designed for the specific needs of particular projects,

but still keeps that force within the overall Police

Department delivery system. Another advantage of this

technique is that it allows members of the special force to

become closely involved in, and committed to, the project

community.

b\. A project substation (i.e.,located within a housing project)

might serve as the base of operations and support for a

special Police Department force in a large project, or a

group of projects. This technique adds a highly visible

element of on-site police presence and can also be helpful in

promoting positive police-resident relations.

c\. Police monitors might be used to man electronic surveillance

and alarm systems. Such systems can sometimes be tied into

the regular police precinct headquarters. This kind of

monitoring is a particularly appropriate use for a project

substation.

31\. PLANNING FOR SECURITY PERSONNEL. To the extent that adequate

policing services cannot be obtained from the local Police

Department, despite the efforts suggested in the previous

paragraphs of this Chapter, Management must consider the use of

\"security personnel\" (i.e.,non-Police Department personnel to

perform policing functions within project boundaries). This does

not mean that Management should immediately establish a large

security force. On the contrary, the need for careful planning

increases with the degree of unmet policing needs. The options

involved in security personnel services are many, reflecting the

fact that such services have been developed locally in response

to the needs and constraints of particular housing projects,

rather than according to prescribed formulae. Paragraphs 32

through 35 below are devoted to examination of these options, but

in order first to put the issues into a proper planning

perspective, the following checklist of basic questions is

offered:

a\. What are the total policing needs of the project which

cannot be met by the Police Department? The answer to this

question will define the limits for security personnel

planning. Identification of priorities among total unmet

needs will provide a firm basis for further choices.

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b\. What should be the scope of the functions of security

personnel? In the simplest terms, this is a question of the

extent to which security personnel should use force. See

paragraph 32 below.

c\. What specific types of security personnel functions should be

used? The basic options include patrolling, stationary

guarding, and monitoring electronic alarm and surveillance

equipment. See paragraph 33 below.

d\. What type of organization should be used for security

personnel? The major options here are management security

forces, resident patrols,and contract guard services. See

paragraph 34 below.

e\. What kind of administration, training, and equipment should

be used for security personnel? See paragraph 35 below.

f\. How do funding considerations affect the choice of options?

If (as is likely in most instances) available funding is

inadequate to permit choice of all of the most desirable

options, it will be necessary to consider less desirable and

less costly options and to concentrate on high-priority

needs. Even where generous funds are available, Management

should consider whether some problems which are susceptible

to policing measures can be remedied by more cost-effective

nonpolicing measures discussed elsewhere in this Handbook.

32\. SCOPE OF FUNCTIONS OF SECURITY PERSONNEL. In planning for

security personnel, a basic question is the scope of the

functions which such personnel are to perform. In the case of a

small project, the area for choice will be relatively narrow.

However, for a large project or a group of projects where a

sizable security force is contemplated, the range of options is

very broad. The following indicates the nature of these options:

a\. Housing Police Forces. A few large LHAs have organized

their own \"Housing Police Forces,\" a term used in this

Handbook to denote security forces with functions and powers

tantamount to those of a regular Police Department, but with

jurisdiction limited to the boundaries of specific housing

projects. These forces handle all, or virtually all,

policing services, including patrolling, guarding,

apprehension, arrest, and investigation. Since such forces

totally or largely supplant the regular Police Department

within their jurisdictional areas, their operations require

enabling legislation and/or agreement between Management and

the local governing body. Obviously, a Housing Police Force

is suitable only for a very large housing operation, and

detailed discussion of this complex type of operation is

beyond the scope of this Handbook.

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b\. Supplemental Security Personnel. For the great majority of

housing projects, full-fledged Housing Police Forces are

neither feasible nor suitable. Instead, the functions of

their security personnel will be to supplement the services of

the regular local Police Department, and so will be designed

to provide only the services which the Police Department

cannot provide. Since this is the type of security personnel

which will be of interest for all but the very largest housing

operation, paragraphs 33 through 35 below are written in terms

of this type of supplemental policing services, and not in

terms of Housing Police Forces. Whether such security

personnel consist of a single night watchman or a sizeable

force of patrolmen and stationary guards, their major

objective should be non-forcible deterrence, designed to

dissuade potential offenders from attempting crimes or to

detect and stop crimes before they can be consummated. They

should rely upon Police Department backup for apprehension

and arrest. \"Security presence\" is of cardinal importance,

and high visibility is essential. Of course, the credibility

of security personnel of this type depends upon their actual

and perceived ability to bring force to bear if need be, and

they must therefore be able to obtain prompt Police Department

intervention. Moreover, it may be necessary or advisable for

security personnel themselves to have some capability for

force (at least for self-defense) in emergency situations.

However, it is generally preferable that their use of force

be minimal. As this indicates, use of supplemental security

personnel is subject to many functional shadings, ranging from

mere surveillance to duties approaching those of a full-

fledged Housing Police Force. The fundamental distinction is

whether housing security personnel supplant or supplement

Police Department services.

33\. TYPES OF FUNCTIONS OF SECURITY PERSONNEL. Security personnel

of the supplemental variety can perform three basic types of

operational functions\--patrolling, stationary guarding, and

monitoring of electronic alarm and surveillance systems\--which

may be implemented independently or in combination. The choice

among these options is a matter for close cost-effectiveness

comparison.

a\. Patrolling. This familiar type of function is designed to

provide maximum use of manpower in policing relatively large

areas. Patrolling may be as simple as the use of a single

night watchman in a small project, or as complex as the

employment of a sizeable 24-hour patrol force in a large

project or group of projects. While patrolling is a popular

option, there is nothing necessarily superior about it.

Generally,

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it is the best choice where it is desirable to extend a

personal security presence over a widespread area.

Patrolling is most often used to cover project grounds, with

on-call response to incidents within buildings. However,

\"vertical patrolling\" (i.e.,systematic patrol of common

interior areas, such as lobbies, elevators, hallways,and fire

stairwells) can be a highly effective use of security

manpower.

b\. Stationary Guarding. Stationary guards are most often used

to provide security at lobby entrances, and in that

application are usually called doormen or lobby monitors.

They may screen entry, perform general surveillance,and

provide incidental assistance to residents. However,

basically the same technique can be applied at other

strategic points within buildings and even on the project\'s

grounds. A guard positioned at an outdoor station which

commands main exterior approaches, recreational areas,and

parking lots may well be more cost-effective than patrolling.

Design and hardware elements are crucial to control by

stationary guards. For example, the existence of unsecured

secondary access doors largely defeats the effectiveness of

lobby guards.

c\. Monitoring of Electronic Alarm and Surveillance Systems.

Monitors of electronic alarm and surveillance systems serve

as informational relays and must be able to secure prompt

dispatch of police officers or security patrolmen to the

scene of a security emergency. Stationary guards might

double as monitors of electronic surveillance and alarm

systems, provided that they are able to give adequate

attention to both personal and electronic duties.

34\. TYPES OF SECURITY PERSONNEL ORGANIZATIONS. Where a sizeable

number of security personnel is used, the type of organizational

structure is a crucial consideration. However, sound planning

requires that the previously-discussed issues regarding scope

and type of functions be largely resolved before determining the

specific type of organization to be used. Types of security

personnel organizations can be roughly divided into the following

three basic categories, which might be used independently or in

combination (in actual practice, there are many possible

variations which tend to blur these distinctions):

a\. Management security forces are an integral part of

Management\'s overall organizational structure. Their members

are direct, paid employees of Management, which thus has the

normal authority of an employer over hiring, supervision,and

discharge. The elements of strong Management control

constitutes a major

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advantage over other organizational options. Security

forces of this type have varied considerably in the scope of

functions, as discussed in paragraph 32b above, and may

perform any one or more of the types of functions described

in paragraph 33 above (i.e.,patrolling, stationary guarding,

and monitoring electronic alarm and surveillance systems).

See paragraph 35 below for additional considerations relating

to Management security forces.

b\. Resident patrols (or, as often referred to \"tenant

patrols\"), in their purest form, are wholly comprised of

volunteer residents of the project, and may operate as

independent organizations or under the auspices of the

general residents\' organization. However, Management

sometimes pays for such items as uniforms and equipment, and

in some instances even pays patrol supervisors for their

services. The degree of Management control depends largely

upon its financial support. Even though an organization is

called a resident or tenant patrol, if all its members become

paid employees of Management, the real nature of the

organization approximates that of a Management security

force. Resident patrols have achieved positive results in a

number of instances, in stationary guard as well as

patrolling functions, and Management is advised to give due

consideration to this option. While the impetus for

establishing a resident patrol usually comes from residents

themselves, if Management discerns a potential receptivity to

this option among residents, it might well take the lead in

encouraging and guiding resident participation of this type.

As an \"eyes and ears\" operation enjoying close rapport with

residents, a resident patrol may serve as a valuable adjunct

to the Police Department or a management security force, and

volunteer resident services can ease the financial burden of

project security. Nevertheless, Management should be keenly

aware of the potential drawbacks of resident patrols.

Lacking effective control, Management may find itself in

serious conflict with the resident patrol.

c\. Contract guard services may be purchased by Management from

commercial agencies. Personnel are employees of the agency,

rather than Management, and the basis for Management

supervision is thus apt to be tenuous. Management\'s only

recourse for poor performance may be the difficult one of

terminating the contract. While the quality of services

varies greatly among different contract guard agencies, a

recent study published by the Law Enforcement Assistance

Administration stated: \"In a real sense, many of the

problems associated with the private security industry are

the result of using low-paid, low-quality, under-educated and

untrained employees.\" (\"Private Police in

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the United States: Findings and Recommendations\", Vol. I, R-

869/DOJ, p. 61, U.S. Dept. of Justice, LEAA). For these

reasons, thorough investigation and negotiation is advised

before concluding any such contract.

35\. ADMINISTRATION, TRAINING,AND EQUIPMENT FOR SECURITY FORCES.

Particularly where a sizeable Management security force is

employed, careful attention must be given to the following

points regarding administration, training, and equipment (some

of which are also relevant to resident patrols and contract guard

services):

a\. Management control over the security force should be

strictly maintained. The force should be an integral

component of the overall Management structure, with clearly

defined lines of accountability to the general Management

staff. Care should be taken to prevent the security force

from developing into a separate bureaucracy.

b\. Strong supervision is crucial, particularly for larger

security forces. Analysis of current security conditions

and planning of operations are daily supervisory chores.

Strict discipline must be enforced to assure that personnel

stay on the job and perform their assigned tasks. Sanctions

for infractions must be invoked firmly, fairly, and promptly.

Supervisors should inspect and brief patrolmen and guards

before each shift, and should make frequent spotchecks during

each shift.

c\. Qualifications for supervisors must be especially high. The

chief supervisory officer of a large security force should be

selected with extreme care, and should be well-qualified by

training, experience,and temperament. The ideal person for

this crucial job is one who has had professional police

training and experience; who is able to exercise taut

discipline, economy,and administration; who has a thorough

appreciation of social dynamics;and who possesses a generous

capacity for human sensitivity and compassion. The chief

supervisor must be able to command respect and work closely

with other Management personnel, residents, the Police

Department, and local social services agencies. Such

individuals can be expected to command high salaries, but it

is false economy to accept serious compromise of these

standards.

d\. personnel selection standards should be stringent, and

applicants should be carefully screened. Security personnel

must be able to inspire general confidence and respect, as

well as to perform the specific tasks assigned to them.

Screening should take special care to eliminate applicants

who are

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emotionally unfit or who are likely to abuse the authority

entrusted to security personnel. The Police Department may

be able to assist in screening.

e\. Employment of residents for Management security forces has

generally brought highly favorable results, and is strongly

recommended. A prime advantage is that residents know the

project and the other residents, and they tend to become

strongly committed to their jobs. In low-income projects,

this serves the additional purpose of providing jobs for

residents. A possible disadvantage is that residents may be

subject to undue pressures by their neighbors. Some Managers

have a policy of giving residents first preference for

employment, but not necessarily restricting employment to

residents.

f\. Performance standards should be clearly defined, and

thoroughly understood by all security personnel. For a

sizeable force, these standards, along with a description of

the purpose, organizational structure,and functions of the

force, should be spelled out in a booklet of rules and

regulations, to be distributed to all members of the force

and among residents in general. Residents should be

requested to report significant infractions.

g\. Training is essential for all security personnel. A formal

training course of four to six weeks duration is recommended

for members of a large security force, but even a single

doorman or night watchman should receive some formal or

informal training. Training should be conducted by qualified

professionals, and should cover general Management structure

and operations, physical and social characteristics of the

project, policing techniques and equipment, social aspects

of the security guard\'s role and the purpose, organization,

and specific functions of the security force. Regular

police officers, social service professionals and leaders of

the residents, organization, as well as Management officers,

should participate in training sessions. Special attention

should be given to use of weapons (if any), and where

firearms are to be issued to patrolmen or guards, it is

imperative that they receive thorough training in their use.

h\. The number of security personnel needed for a particular

project is subject to too many variables to permit use of a

general formula for manpower estimates. In practice, ratios

range from a high of four persons (160 manhours per week) to

a low of two persons (80 manhours per week) for each 1,000

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residents. A single lobby guard cannot be expected to

provide screening for more than about 200 apartment units.

i\. Scheduling of security personnel services for maximum cost-

effectiveness requires thorough analysis of the

chronological pattern of the project\'s security problems.

Concentration of services during peak \"trouble hours\" is the

best use of costly security manpower. Figure 2 (page 46)

sets forth a chart showing a typical example of weekly crime

patterns. However, this is merely an illustration, and may

not be valid for a particular project. In scheduling

security personnel services it is essential that a similar

type of chart be prepared for the particular project, based

on the factual analysis described in Chapter 3, paragraph 13

above. Characteristics and life styles of residents are

important elements, and patterns for elderly projects are

apt to differ greatly from those for family projects. In

some projects, a special factor is added on days when Social

Security and welfare checks are delivered, bringing an

increase in muggings and mail thefts. In addition,

consideration should be given to the mitigating effect of

such measures as keeping lobby doors locked during nighttime

hours.

j\. Costs of security personnel are high. Salaries and benefits

take the largest part of overall costs, but equipment alone

can require substantial expenditures. Salaries vary

greatly, depending upon prevailing local wage rates and the

qualifications and duties expected. If personnel

approaching the qualifications and responsibilities of

regular police officers are to be used, relatively high

rates of compensation can be expected.

k\. Uniforms are strongly recommended for all patrolmen and

stationary guards, in order to achieve a highly visible

security presence and to instill pride and confidence.

Uniforms may be similar to those usually worn by regular

police officers, or may be of a more \"civilian\" design, if

that is thought to create better rapport with the community,

but they should in either case be professional and

distinctive. Personnel should be required to maintain their

uniforms in accordance with strict standards and shabby

uniforms or the wearing of nonstandard garments or insignia

should not be tolerated. Off-duty wearing of uniforms

should be prohibited.

l\. Individual equipment should include reliable two-way

communications units, linked to the security force

dispatcher or Police Department. It may be advisable to add

self-defensive weapons, although they should by no means be

regarded as standard. Firearms are the most controversial

type of equipment, and should be issued only if considered

necessary for self-defense, and only to responsible and

well-trained individuals. The

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question of firearms and other weapons should be discussed

with residents, who are sometimes strongly opposed to their

issuance to security personnel.

m\. Other equipment may be needed for larger security forces.

Patrol cars can be justified only for policing large areas.

Motor scooters or bicycles provide more flexible mobility.

These, and central communications equipment, should be

carefully selected, and the assistance of the Police

Department or other law enforcement professionals is

essential.

n\. Legal considerations should be checked out in advance by

Management\'s attorney. State and local laws may impose

strict requirements for housing security personnel, and

licensing may be required. Certain types of communications

networks are subject to Federal regulation. Possible

liability for the acts or omissions of security personnel is

another legal matter about which the advice of counsel

should be obtained.

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