Police Administration Structures Processes and Behavior 9th Edition Ebook PDF

Police Administration: Structures,
Processes, and Behavior 9th Edition,

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Contents
Preface xxiii
Acknowledgments xxix
About the Authors xxxi
PART 1 Foundations 2
Chapter 1 The Evolution of Police Administration 3
Introduction 4
The Urbanization of American Policing 4
Politics and Administration in the 19th Century: ILLs of the
Patronage System/Spoils System 8
The Reformation Period 10
Arousing the Public from Its Apathy: The Muckrakers 10
The Conceptual Cornerstone 11
Police Professionalization 12
Profession and Professional 12
The Pendleton Act of 1883 to the Military Model 14
Prohibition to the 1930s 14
The Roaring ’20s and Prohibition 14
The Lawless Years: Late 1920s to 1930s 16
The Ku Klux Klan: Formation to the 1930s 18
The 1940s and 1950s: War, Fear of Communism, and the Professional
Model Reasserted 19
The 1940s: World War II and Some Progress for Women in Policing 20
The 1950s: The Korean War, Fear of Communism, and the Professional
Model Reasserted 20
The Turbulent 1960s: Riots, Political Protests, Assassinations,
and the Isolation of the Rank and File 23
The 1970s: Research, Experimentation, and Rising Terrorism 25
1980s to The 9/11 Attacks: The Community-Oriented Policing Era 27
The New Operating Environment: Post-9/11 to 2016 27
Chapter Summary 32 Chapter Review Questions 33
Critical Thinking Exercises 34 Key Terms 34 Endnotes 34
vii
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viii Conte n t s
Chapter 2 Policing Today 40

Introduction 41
Community Policing 41
Evaluation Research on Community Policing 42
Community Policing and Compstat 43
Community Policing Models 46
Newport News, Virginia 46
Chicago, Illinois 47
Minneapolis, Minnesota 50
Policing Strategies Today 51
Evidence-Based Policing 51
Hot-Spots Policing 54
Directed and Saturation Patrols 55
Intelligence-Led Policing 55
Predictive Policing 56
Information Technologies in Policing 56
Crime Analysis 56
Geographic Information Systems (GIS) 58
The Internet 58
Social Media and Policing 59
The Impact of Information Technologies 61
A Changing Paradigm: from Warrior to Guardian 61
The Historical Drift Toward Militarization 62
Current Unrest with the Police 63
Improving Police-Community Relations 64
Chapter 3 Intelligence, Terrorism, and Homeland

Security 74
Introduction 75
Intelligence and Terrorism 76
The Intelligence Process and Cycle 76
Fusion Centers 76
The National Fusion Center Association (NFCA) and the National
Counterterrorism Center (NCTC) 81
Policing Terrorism 81
Criticisms Aimed at Fusion Centers and Other Law Enforcement
Responses to Terrorism 82
Homeland Security 84

Cont ent s ix
Homeland Security and President Barack Obama 85

Political Violence and Terrorism 85
Defining Terrorism 85
Radical Islamic Terrorism 88
al-Qaeda (AQ) 88
The Islamic State (ISIS) 89
“Homegrown” Islamic Terrorists 91
Crude Devices and Non-Sophisticated Weapons aimed at Mass Casualty 96
Other International Threats 96
Boko Haram 97
The Mexican Cartels 97
Outlaw Motorcycle Gangs (OMGs) 98
Right-Wing Extremism 100
Hate Crimes 101
Digital Hate 102
Ecoterrorists and Animal Rights Groups 103
Chapter 4 Politics and Police Administration 112

Introduction 113
Federal Influence in Law Enforcement 113
Supreme Court Decisions Affecting Law Enforcement: 1961 to 1966 113
The Roles of State and Local Governments in Law Enforcement 114
Local Political Forces 115
Strong Mayor 115
City Manager 116
City Councils 116
Politics and The Police Chief 118
Tenure and Contracts for Police Chiefs 118
Politics and The County Sheriff 119
Unique Legal Status of Sheriffs 119
State Prosecutor 121
The Judiciary 121
Citizen Oversight of The Police 122
Types of Citizen Oversight Systems 122
Advantages and Drawbacks of Citizen Oversight 122
Concerns Expressed by Law Enforcement and Unions 122
Public Interest Organizations 122
Chambers of Commerce and Service Clubs 124

x Conte n t s
Churches 124
News Media 124
Alleged Police Misconduct in Baltimore, Maryland and
the Political Fallout 125
Statement of the Charges 125
The Rioting Starts 126
The Decision to Prosecute 127
Charges Filed Against the Six Officers 127
The Political Divide 128
The Use of Police Body-Worn Cameras and Politics 128
The Catalyst for Accelerated Change 128
Body-Worn Cameras (BWCs) and Privacy Issues 129
Redaction Capabilities 129
Storage of Recordings 129
Costs 130
Racial and Ethnic Profiling 130
Media Accounts of Profiling on Local and National Politics 130
Other Recent Significant Deadly Encounters between the Police
and African-American Males 133
The Police Operational Backlash 135
Illegal Immigration: The Police and Local Politics 135
PART 2 The Organization and the Leader 142

Chapter 5 Organizational Theory 144
Introduction 145
Formal Organizations 145
Traditional Organizational Theory 146
Taylor: Scientific Management 146
Weber: The Bureaucratic Model 149
The Reformatted Bureaucracy 150
The Police as Street-Level Bureaucrats 154
Administrative Theory 154
Critique of Traditional Theory 155
Human Relations School 156
Critique of the Human Relations School 157
Organizational Humanism 158
Maslow: The Needs Hierarchy 158
Argyris: Immaturity-Maturity Theory 159

Cont ent s xi
McGregor: Theory X–Theory Y 159

Herzberg: Motivation-Hygiene Theory 159
Critique of Organizational Humanism 161
Behavioral Systems Theory 161
Critique of Behavioral Systems Theory 162
Organizations as Open Systems 162
Critique of Open Systems Theory 164
Other Paradigms of Administration 165
Environmental Theories 165
Networked and Virtual Organizations 165
Sense Making 166
Chaos Theory 167
Critique of Other Paradigms of Administration 167
Chapter 6 Organizational Design 176

Introduction 177
Organizing: An Overview 177
Specialization in Police Agencies 177
The Principle of Hierarchy 179
Span of Control vs. Span of Management 179
Organizational Structure and Design 180
Top-Down vs. Bottom-Up Approaches 183
Basic Types of Police Organizational Design 186
Line Structure 186
Line and Staff Structure 186
Functional Structure 188
Matrix Structure 190
Organizational Structure Today 191
Traditional Design vs. Structural Change 192
Intelligence-Led Policing (ILP) and Organizational Structure 194
Organizational Design and the Investigative Function 194
Crime Factors Impacting Investigation 197
Some Unique Organizational Features of
Sheriff’s Offices 199
Line and Staff Relationships in Police Agencies 200
The Line Point of View 201
The Staff Point of View 202
Solutions 202

xii Cont e n ts
The Informal Organization 204

Chapter 7 Leadership 212

Introduction 213
Police Leadership 213
Leader and Manager 213
The Fall of Police Leaders 217
Leadership, Authority, and Power 220
The Power Motivation of Police Leaders 221
The Leadership Skill Mix 222
Human Relations Skills 222
Conceptual Skills 223
Technical Skills 223
Theories of Leadership 223
Traditional Leadership Theory 223
Behavior and Leadership Style Theories 227
Contingency and Situational Leadership Theories 230
Transactional and Transformational Leaders 239
Comparison of Charismatic and Transformational Leadership 242
The “New Leadership” Theories: Servant, Spiritual, Authentic, and Ethical 243
Conclusion 247
Chapter 8 Planning and Decision Making 256

Introduction 257
Planning 257
Planning as a Process 258
The SITAR Approaches to Planning 258
Planning and Time Orientations 259
Synoptic Planning 259
Steps in Synoptic Planning 259
Implement Decision, Monitor, and Adjust the Plan as Needed 262
Other Categories of Plans 263
Administrative or Management Plans 263
Procedural Plans 263
Operational Plans 263
Tactical Plans 263
Strategic Plans 266
A01_SWAN4056_09_SE_FM.indd 12 8/23/18 11:37 AM

Cont ent s xiii
Blending Five Types of Plans 266

Decision Making 269
Rational Comprehensive and Sequencing Models 269
Simon: Bounded Rationality 270
Lindblom: Muddling Through/Disjointed Incrementalism 270
Allison: Political and Organizational Models 271
Gore: The Gut Level Approach 271
Recognition-Primed Decision Making (RPD) 272
Thin-Slicing Theory 272
The Use of Computers in the Decision Making Process 272
The Use of a Decision Tree 273
Alternative Decision-Making Models 274
Decision Making During Crisis Events 275
The Branch Davidians, Waco, Texas (1993) 275
The Weaver Family, Ruby Ridge, Idaho (1992) 276
Analysis of Decisions Made During Protracted Crisis Events 276
Handling Crisis Events in the Future 277
Group Decision Making 278
Group Assets in Decision Making 278
Group Liabilities in Decision Making 279
Factors That Can Serve as Assets or Liabilities in Group Decision Making 280
Ethics and Decision Making 281
Common Errors in Decision Making 282
Cognitive Nearsightedness 282
Assumption That the Future Will Repeat Itself 282
Oversimplification 282
Overreliance on One’s Own Experience 282
Preconceived Notions/Confirmation Bias 282
Unwillingness to Experiment 282
Reluctance to Decide/Procrastination 283
Improving Decision Making 283
Chapter 9 Human Resource Management 290

Introduction 291
Functions of a Police Human Resources Unit 291
Key Federal Laws Prohibiting Job Discrimination 292
Job Discrimination Laws Administered by the Equal Employment Opportunity
Commission 292
Job Discrimination Laws Administered by the Department of Labor 301

xiv Conte n t s
The Police Personnel Selection Process 305

Applicants and Recruiting 305
The Entrance Examination 308
The Physical Assessment Test 309
The Lie Detection/Truth Verification Examination and Background/Character
Investigation 311
The Oral Board 312
Conditional Job Offer 313
The Medical Examination, Drug Test, and Psychological Screening 313
The Formal Offer of Employment 314
The Recruit Academy 314
Probationary to Career Status 315
Work Generations and the New Recruiting 316
The Silent Generation 316
The Baby Boomers 316
Generation X 316
Generation Y: The Millenniums 317
Generations Z and Alpha 318
The New Recruiting 318
Military Call-Ups and Reinstatement 318
Early Intervention Systems 320
Discipline 321
Standards of Conduct and Progressive Discipline 321
Administration of Discipline 322
The Discipline Matrix 323
Legal Aspects of Discipline 324
Performance Appraisal 324
Promotions 326
Written Promotional Tests 327
Oral Boards and Assessment Centers 328
Selection from the Promotional Roster 332
Retirement Counseling 333
PART 3 The Management of Police Organizations 344

Chapter 10 Organizational and Interpersonal
Communication 346
Introduction 346
The Communication Process 347
Steps in the Communication Process 347

C ont ent s xv
Communication Barriers 348

Organizational Systems of Communication 348
Multi-Level and Multi-Agency Communication 349
Downward Communication 349
Most Effective to Least Effective Downward Communication 350
Upward Communication 350
Barriers Involving Police Organizations 350
Barriers Involving Superiors 350
Barriers Involving Subordinates 350
Horizontal Communication 351
The Grapevine 351
Organizational Electronic Communication 352
Tips for Successful E-Mail Use 352
The Use of Technology in Police Administration 353
The Use of Teleconferencing and Cell Phones 353
Social Media and Law Enforcement Communication 353
Social Media Management 353
Selecting the Right Personnel 353
The Importance of Voice and Tone 354
The Use of Social Media with the Public 354
Sacramento, California Police Department (SPD) 354
Los Angeles County, California Sheriff’s Department (LASD) 354
Boston, Massachusetts Police Department (BPD) 356
Issues Regarding Officers’ Personal Postings on Social Media Sites 356
Albuquerque, New Mexico Police Department (APD) 356
Arlington, Texas Police Department (APD) 356
Specific Elements of Internet Sites/Web Page/Social Network Police Policy 356
The Evolution of Police–Media Communication in the Digital Age 357
Today’s Media Technology and the Public Information Officer 357
Interpersonal Communication 359
Speaking and Writing 359
Be Credible 359
Gear the Message to the Listener 359
Persuade Group Members on the Benefits of Change 359
Use Heavy-Impact and Emotion-Provoking Words 360
Back Up Conclusions with Data 360
Minimize Vocalized Pauses and Parasitic Words/Junk Words 360
Write Crisp, Clear Memos and Reports, Including a Front-Loaded Message 360
Use a Power-Oriented Linguistic Style 360
Nonverbal Communication 361
Group vs. Interpersonal Communication 362
Size of the Group 362

xvi Conte n t s
Group Interaction 362

Cross-Gender Communication 362
Communication With Other Cultures 363
Other Multicultural Issues 364
Developing a Culturally Aware Workforce 366
Communicating Across Generations 367
Some Generalizations 367
Generation X 367
Generation Y/Millennials 368
Generational Differences in Formal and Informal Styles of Communication 369
Communicating With People With Disabilities 370
Individuals Who Are Blind or Visually Impaired 370
Individuals Who Are Deaf or Hard of Hearing 370
Individuals with Mobility Impairments 370
Individuals with Speech Impairments 371
Individuals with Cognitive Disabilities 371
Chapter 11 LABOR RELATIONS 376

Introduction 377
Unionization of the Police: A Historical Perspective 377
The Needs of Labor Organizations to Expand Their Membership 377
The Reduction of Legal Barriers 377
Police Frustration with the Perceived Lack of Support for Their War on Crime 378
Perceived Public Hostility 378
The Impact of the Due Process Revolution 378
Personnel Practices in Police Agencies 378
Salaries and Benefits 379
Violence Directed at the Police 379
The Success of Other Groups 379
The Impact of Police Unions on the Community 379
Impact on Discipline and Accountability 380
Impact on the Police Subculture 380
The Relationship Between Police Unions and the Police Subculture 380
Impact on City or County Finances 381
Impact on Local Politics 381
The General Structure of Laws Governing Collective Bargaining for Law
Enforcement Officers 381
Binding Arbitration Model 381
Meet and Confer Model 382

Cont ent s xvii
Bargaining Not Required Model 382

Unfair Labor Practices 382
Categories of Collective Bargaining Topics 382
Establishing the Bargaining Relationship 383
The Process 383
The Opportunity for Conflict 384
Negotiations 385
Selection of the Management and Union Teams 385
Personality Types to Be Avoided 385
Preparing for Negotiations 386
The Negotiating Sessions 386
Grievances 387
Why Grievances Are Inevitable 387
The Definition of a Grievance 388
The Grievance Procedure 388
Arbitration Issues and Decision Making 388
Job Actions 389
The Vote of Confidence 389
Work Slowdowns 389
Work Speedups 389
Work Stoppages 390
Police Unions: The Political Context 390
Administrative Reaction to Job Actions 391
During the Job Action 391
Labor-Management Relations in the Face of Funding Cutbacks 392
Setting New Priorities 393
A New Reality Regarding Budgets 393
Specific Recommendations on How Best to Deal With
Budget Reductions 393
Los Angeles, CA Assistant Chief Michel Moore: 394
Columbus, OH Deputy Chief Tim Becker: 394
Philadelphia, PA Commissioner Chuck Ramsey: 395
Camden, NJ Deputy Chief Mike Lynch: 395
Darryl Clodt, Sergeant at Arms, Las Vegas, NV Police
Protective Association: 395
Chapter 12 Financial Management 402

Introduction 403
The Economy and Police Budgets 403

xviii Conte n t s
Stockton: Bankrupt and Only Responding to Crimes in Progress

Many Hours of the Day 403
Law Enforcement Agencies and Fiscal Stress 406
Politics and Financial Management 407
State and Local Influences on Financial Management 408
Key Budget Terms 408
The Budget Cycle 409
Step One: Budget Preparation in the Police Department 410
Step Two: Budget Review and Approval 412
Step Three: Budget Execution 415
Budget Adjustments 415
Step Four: The Audit and Evaluation 418
Budget Formats 419
The Line Item Budget 419
The Program Budget 420
The Performance Budget/Performance Based Budget (PB/PBB) 421
The Planning, Programming Budgeting System (PPBS),
and Zero-Based Budgeting (ZBB) 423
The Hybrid Budget 424
Asset Forfeiture, Grants, Police Foundations and Donation Programs,
and the Wide Use of Volunteers 424
Asset Forfeiture 424
Grants 425
Police Foundations and Donations 426
Wide Use of Volunteers 426
Part 4 Organizational Issues 434

Chapter 13 Stress and Police Personnel 436
Introduction 437
What is Stress? 437
Biological Stress and the General Adaptation Syndrome 438
Diseases of Adaptation and Recent Medical Findings 438
The Role of Stress in Heart Disease 439
Major Stressful Life Events 439
Stress and Personality Type 439
Type A Personality 439
Type B Personality 440
Type C Personality 440
Type D Personality 440

Cont ent s xix
Workaholic Personality 440

The Pitfalls of Being a Workaholic—Police Work Addiction 440
Stress in Law Enforcement 441
The Highest Police Stressors 441
Perceptual, Cognitive, and Behavioral Disturbances Resulting
from the Use of Deadly Force 442
Five Basic Phases of the Post-Shooting Reaction 443
Post-shooting Interview 444
Posttraumatic Stress Disorder (PTSD) 444
The Clinical Classification 444
Symptoms of Posttraumatic Stress Disorder 444
Cumulative Career Traumatic Stress (CCTS) 445
Alcohol, Drugs, and Steroid Use by Police Officers 446
Alcoholism and Police Officers 446
The Impact of the Police Culture and Character Traits
on the Development of Alcoholism 446
Drug Use by Police Officers 446
Anabolic Steroids 447
Controlled Substances 447
Illicit “Benefits” of AASs 447
Adverse Physical Effects of AAS 447
Adverse Psychological Effects of AAS 448
Symptoms Associated with Withdrawal of AAS: 448
Typical Issues Addressed in Police Steroid Testing Policies 448
Police Suicide 449
Need for a Cultural Change in Law Enforcement 449
Stressors That May Contribute to Suicide or Mental Illness 450
Indicators of Police Officers Who May be Contemplating Suicide 451
Intervention Protocols 451
Police Domestic Violence 451
Early Warning and Intervention 452
Pre-Employment Screening and Investigation 452
Post-Conditional Offer of Employment 452
Zero Tolerance Policy 452
Department Responsibilities 452
Supervisory Responsibilities 452
Police Officer Responsibilities 453
Incident Response Protocols 453
Domestic Violence Lethality Assessment for first Responders 454
Police Officer Homicides and Suicides 456
Case 1 456
Case 2 456

xx Conte n t s
Case 3 456
The Stress of Small Town Policing 456
The Impact of Shift Length on Performance, Health, Quality of Life, Sleep,
Fatigue, and Extra-Duty Employment 457
Sleep Deprivation as a Stress Inducer 457
Sleep Deprivation Is Comparable to Excessive Drinking 458
Sleep Deprivation Can Cause Work-Related Accidents 458
Stress Reduction Management Techniques 458
The Police Psychologist’s Role in a Psychological Health
Wellness Initiative 458
Employee Assistance Programs 459
Chapter Summary 462 Chapter Review Questions 463 Critical Thinking
Exercises 463 Key Terms 464 Endnotes 464
Chapter 14 Legal Aspects of Police Administration 468

Introduction 469
Liability for Police Conduct 469
Basic Types of Police Tort Actions 469
Title 42, U.S. Code, Section 1983 470
Bivens Action 471
Who Can Be Sued? 471
Negligent Hiring 471
Negligent Assignment, Retention, and Entrustment 471
Negligent Direction and Supervision 471
Negligent Training 472
Scope of Liability 474
Trends in Tort Liability for Police Supervisors and Administrators 475
Misuse of Firearms and Deadly Force 476
Tennessee v. Garner (1985) 476
Graham v. Connor (1989) 477
Evaluation of Written Directives 478
Familiarization with the Department’s Policy 479
Police Use of Force and Less-Lethal Weapons 480
®
Tasers 480
Liability and Less-Lethal Weapons 481
Police Liability and High-Speed Pursuit 482
Duty Owed 482
Proximate Cause 483
Federal Civil Rights Act 483
Factors Determining Liability 484
Departmental Responsibility for Liability Reduction 485

Cont ent s xxi
Liability and Emotionally Disturbed Persons 487

Federal Consent Decrees 489
Administrative Discipline: Due Process for Police Officers 491
Liberty and Property Rights of Police Officers 491
Procedural Due Process 492
Substantive Due Process 493
Damages and Remedies 493
Constitutional Rights of Police Officers 493
Free Speech 494
Other First Amendment Rights 494
Searches and Seizures and the Right to Privacy 495
Right Against Self-Incrimination 496
Other Grounds for Disciplinary Action 497
Conduct Unbecoming an Officer 497
Brady Violations 498
Social Network Sites 499
Sexual Conduct and Sexual Orientation 499
Residency Requirements 500
Moonlighting 500
Alcohol and Drug Testing 500
Chapter 15 Organizational Change 512

Introduction 513
Why Change Occurs 513
Reaction to Crisis 513
Fluctuating Crime Rates 515
Technological Advances 515
Funding and Economic Decline 515
Politics 516
A Changing Workforce 517
A New Paradigm Shift 518
When Change Should Not Be Made 519
Organizational Change Models 519
Kurt Lewin’s Three-Step Model on Organizational Change 519
Traditional Action Research Model 520
The Burke-Litwin Model 522
Various Levels of Change 523
The Role of the Police Culture in Organizational Change 524
Why Organizational Change Efforts Sometimes Fail 524

xxii Con te n t s
Models Regarding Change 525

Ways To Make Organizational Change Successful 525
Use Coaching as a Tool to Facilitate Organizational Change 525
Set Flexible Priorities 526
Assemble Resources 526
Seize Opportunities 526
Create Opportunities 526
Follow Through 527
Information Technology and Change 527
Policing in the Future: Everything Changes 529
Glossary 535
Index 547

Preface
The field of police administration is dynamic and ever Edwards Walker is the only woman to receive the
changing. Laws are modified, new problems occur, and Congressional Medal of Honor. She subsequently
administrative practices that were once accepted as gos- had it stripped from her, although it was restored
pel are challenged, modified, and, in some cases, dis- decades after her death. What explains these con-
carded. Beginning in the turbulent 1960s with the due tradictory actions?
process revolution, followed by the civil rights move-
Users of the book will find much that is familiar to
ment, the Vietnam War demonstrations, widespread riots
them and carefully planned additions to continue moving
in our largest cities, the President’s Commission on Law
it forward. The thumbnail sketches of chapters in the fol-
Enforcement and the Administration of Justice, and large-
lowing section illustrates, without being exhaustive, what
scale research on policing, the somewhat static precepts
we have done with this revision. In forging this edition,
of policing came under increased scrutiny. Like a ball
we kept the reader, the user, the profession central at the
gaining speed as it rolls down a steep hill, change has
to our efforts, and the impact of the larger society care-
become more fast paced, urgent, and pervasive.
fully in our minds.
Even while revising this book, we returned occasion-
ally to already “finished” chapters to include significant
developments. When unarmed Michael Brown was shot Chapter 1: The Evolution
to death by a Ferguson, Missouri, Police Officer, civil pro-
tests and some rioting ensued. The incident produced a of Police Administration
call for a federal civil rights investigation, better training
for the police, body cameras, and an indictment for mur- • Added major section, “The New Operating
der. Other cities soon had their own police use of force Environment”
issues, such as the death in police custody of Freddie Gay • Fresh and revised content in many sections
in Baltimore in 2015. How these and other events have • More Box Items, Quick Facts, and photographs
played out they represent our effort to keep the book
strong and balanced between theory and the “the real
world.” Chapter 2: Policing Today
Collectively, the three authors of this text have been
police officers, detectives, administrators, and educa- • New and revised material on the impact of the
tors for over 100 years. We have studied, practiced, decline in crime over the past decade on police
researched, taught, and consulted on police administra- departments nationally with a special focus on new,
tion, and an inevitable by-product of these experiences rising violent crime rates in large cities
is the development of certain perspectives. In addition to • Revised material on the primary elements of com-
meticulous research and recent events, our own insights munity policing with a focus on organizational
also undergird this book. structure
• New and updated material on evaluation research
and community policing, evidence-based policing,
New to This Edition hot-spots policing, intelligence-led policing, and
predictive policing.
This revision of Police Administration includes: • New material on the “Triple-T Strategy: Targeting,
• Many new, revised, and updated sections, e.g., Testing and Tracking” proposed recently by Larry
failed police leadership, supplemental budgets, and Sherman.
new information on the smart policing initiative; • A new box item on “Harm-Focused Policing”
• Coverage of timely topics, such as the guardian and • Updated material on community policing models in
harm-focused models of policing, and the Triple T Newport News, Virginia; Chicago, Illinois; and Min-
Strategy; neapolis, Minnesota
• Important developments, such as the closer scrutiny • New material on the use of social media and policing
of police officers use of deadly force; • New material on the changing paradigm in polic-
• New photographs, figures, tables, and box items ing, from the warrior to guardian philosophy.
on current topics and quick fact boxes that further • New and in-depth discussion on the militarization
illuminate chapter narratives. To illustrate, Mary of the police
xxiii

xxiv Pre fa ce
• New material on improving police-community • Investigation of the police rank and file backlash
relations in light of President Barak Obama’s Crime from the firing, indicting, and arresting of police
Reduction and Prevention Initiative in 2014. officers on criminal charges.
• New box item on “Youth Outreach Programs”
Chapter 5:
Chapter 3: Intelligence, Organizational Theory
Terrorism, and • New Sections on mechanistic and organic
Homeland Security organizations and the Reformatted Bureaucracy
• Significant discussion of sanctuary cities
• New box item on “Ten Simple Steps that Assist Indi- • Additional Box Items, Quick Facts, and
vidual Police Agencies Become Part of the National photographs
Criminal Intelligence Sharing Plan
• New material highlighting the Nation Fusion Center
Association (NFCA) and the National Counterterror- Chapter 6:
ism Center (NCTC)
• New box item on the USA Freedom Act Organizational Design
• Updated material on the U.S. Department of Home- • New box items on how organizational structure
land Security impact police misconduct and how bottom-up
• Revised and updated material on Radical Islamic approaches improves officer performance and moral
Terrorism, with a special focus on Al-Qaeda and • Updated material on the factors that influence orga-
the Islamic State, including an analysis of the Char- nizational design
lie Hebdo attack in Paris, France in 2015 • New material on organizational design and the
• Updated information relating to radical Islamic investigative function with pointed discussion on
groups operating throughout the world crime and police factors that impact investigation
• Revised information on ‘homegrown’ Islamic terror- • New focused discussion on investigative styles
ists, including an analysis of the Boston Marathon commonly observed within police organizations
bombing in 2013
• Revised material on the unique structure of sheriffs’
• New material on terrorist groups and the use of the offices in the United States
“deep web” for recruiting, propaganda and opera-
tional planning
• New section devoted to the analysis of recent Chapter 7: Leadership
terrorist attacks: “Crude Devises and Non-Sophisti-
cated Weapons aimed at Mass Casualty” • New section on effective senior police leadership
• New and updated research on other international • Rewritten section on managers and leaders
threats posed by terrorists, including discussion on • New section “The Fall of Police Leaders,” an exami-
Boko Harem, “El Chapo” Guzman and the Mexican nation of failed police leaders
Cartels, and an extensive addition on Outlaw • New content on sense making and other work skills
Motorcycle Gangs • New content on the Warrior Servant Leader
• Updated and revised material on right-wing terror- • New Box Items, Quick Facts, and photographs
ism, with a focused box item on the Charleston,
South Carolina Church Massacre in 2015
Chapter 8: Planning and
Chapter 4: Politics and Police Decision Making
Administration • Synoptic, Incremental, Transactive, Advocacy, and
Radical (SITAR) Approaches to Planning
• New discussion of the call for and use of police
• Planning and Time Orientations
body-worn cameras
• Strengths, Weaknesses, Opportunities, and Threats
• Examination of some highly controversial shootings
(SWOT) Analysis
of African-American males by police officers and
the political and institutional response in investigat- • The Pugh Decision Making Matrix
ing allegations of police profiling. • Paired Comparisons of Planning Alternatives

P re fac e xxv
• Case Study 1: The After Action Report, Navy Ship • Additional information on Citizen Centric Reports
Yard, Washington D.C. Navy in 2014 (Including Les- • New content: Five Budget Tips
sons Learned in Active Shooter Situation) • Major New Section on Budget Adjustments
• Case Study 2: Tampa Quick Look Analysis of Host- • New information on Program Budgets
ing the 2012 National Republication Convention
• Major rewrite of Asset Forfeiture section
• New Box Items, Quick Facts, and photographs
• New information on Performance Budgets
• New content on Black Asphalt
Chapter 9: Human Resource • Major new section on the use of volunteers
Management
• Updated all major federal laws pertaining to Human
Resource Management Chapter 13: Stress
• New summaries of key federal court decisions
on/;p= Human Resource Management, and Police Personnel
• New content on legal aspects of police officer preg-
• Police officers homicide and suicide.
nancies
• The stress of small-town policing.
• Additional information on the use of lie detectors in
police applicant screening • The impact of shift length on performance, health,
quality of life, fatigue and extra-duty employment.
• New content on internal affairs investigations
• The police psychologist’s role in a psychological
• New content on police use of force
health/wellness initiative.
Chapter 10: Organizational

and Interpersonal Chapter 14: Legal Aspects
Communication of Police Administration
• Social media and law enforcement communications. • Expansive new box item on police training and
liability from an officer’s perspective
• Issues regarding police officers personal postings
on social media sites. • Revised and updated material on the misuse of
firearms and deadly force with a special focus on
• The evolution of police – media communications in
the impact of the 2014-15 shooting incidents in
the digital age.
Ferguson, MO; Charleston, SC; Cincinnati, OH; and
• Communicating with people with disabilities. Baltimore, MD
• More Box Items, Quick Facts, and photographs • Revised and updated material on Graham v.
Connor (1989) and the impact of this landmark
case on police liability
Chapter 11: Labor Relations
• New box items on 1) the impact of police body
• Labor – management relations in the face of fund- cameras on police liability; 2) the deadly statis-
ing cutbacks. These include setting new priorities tics associated with police pursuits and chases; 3)
and making specific recommendations on how best police sexual violence as an emerging law enforce-
to deal with budget reductions. ment issue; and 4) police membership in hate
• New Box Items, Quick Facts, and photographs groups
• New material on vehicle pursuits and the use of
deadly force
Chapter 12: Financial • Updated material relating to case law and use of
Management force by the police
• New and expansive material on Federal Consent
• Major rewrite of “The Economy and Police Budgets” Decrees
section • Updated material on police officers’ rights, particu-
• Major new section on the impact of the Stockton larly those focusing on officers who are minority,
(CA) bankruptcy women and/or gay

xxvi Prefa ce
Chapter 15: as providing a “base layer” of information about the field

of police administration so the subject specific chapters
Organizational Change that follow have a context in which to occur
Chapter 1, “The Evolution of Police Administration,” is
• New introductory material on organizational change a historical overview of how that field developed in the
and the factors that impact successful change in United States, along with general description of where it
policing is now. This description serves to prepare the reader for
• New and updated material on why change occurs as some of the important topics to be covered in more detail
a reaction to crisis, fluctuating crime rates, technologi- in the chapters that follow. Chapter 2, “Policing Today,”
cal advances, funding and economic decline, politics, covers current policing philosophies, their characteris-
a changing workforce, and a changing and new tics, and impact. Chapter 3, “Intelligence, Terrorism, and
paradigm shift in policing focusing on new strategies Homeland Security,” addresses the terrorism threat and its
to cope with rising crime rates with less resources impact on national laws and policy, as well as its effect
• New box items that focus on: 1) organizational change on the role of state and local law enforcement agencies.
in policing in wake of police-community unrest; 2) the Chapter 4, “Politics and Police Administration,” Exam-
effect of economic downturn on police agencies; ines the political effect of various institutions, officials,
3) the race gap in America’s police departments; and and the public on law enforcement agencies, as well as
4) confronting the real problem in America’s inner cities some major forces impacting on law enforcement agen-
• New material on the impact of the 2015 Supreme cies, such as the increased scrutiny of police use of force
Court landmark case, Obergefell v Hodges, legalizing cases that started with Ferguson, Missouri in 2014 and
and recognizing same-sex marriage on policing gained prominence with the series of deadly encoun-
ters between the police and unarmed African American
• New and revised material on organizational change
males that followed. The short-term result is an increase
models focusing on Kurt Lewin’s Three-Step Model,
in criminal charges being placed against police officers
the Traditional Action Research Model in Organiza-
in these encounters and which seemingly is having some
tional Development, and the Burke-Litwin Model of
operational consequences.
organization transformation
• Revise material on the role of the police culture in
organizational change Part Two: The Organization
and the Leader
• New material on John Kotter’s 8-step model for suc-
cessful organizational change Organizations exists to do the things people can’t do for
• New and expansive material on information tech- themselves in modern society. They must be thoughtfully
nology and change designed to achieve the purposes for which they are cre-
ated. Leaders are responsible for ensuring organizational
• New and expansive material on policing in the
performance. To do so, they must plan, envision the
future . . . everything changes . . . with special
organization’s future, make decisions, select a course of
focus on the impact of predictive policing, changes
action from alternatives, and direct the human resources
in traditional police responses, next generation 9-11
(HR) program. HR is of substantial importance to police
and body-worn cameras on future police agencies
administration because it is the largest single class of
expenditures for police services: at least 80 percent of the
Organization police operational budget is encumbered by costs for it.
The overall flow of the book starts with Chapter 1 (The These connections constitute the basis for grouping five
Evolution of Police Administration), which explains how chapters together in Part Two.
the field of police administration developed and is con- Chapter Five, “Organizational Theory,” traces the differ-
tinuing to develop and ends with Chapter 15 (Organiza- ent ways organizations can be structured and the assump-
tional Change), which describes important strategies for tions that different approaches make about people. To
going forward. Essentially, these two “bookend” chap- illustrate, the classical bureaucratic approach holds that
ters chronicle how we got here and the means to move subordinates must be closely watched, resulting in such
beyond the here and now. effects as narrow spans of control, which in term, con-
The chapters in this book are grouped into four parts tribute to “tall” organizational structures that often have
or sections, generally moving from broader topics to seven, eight, or even more horizontal layers. Chapter Six,
more specific ones: “Organizational Design,” introduces concepts and the
decisions that affect how organizations are designed and
Part One: Foundations structured. Chapter 7, “Leadership,” is a comprehensive
The four chapters in Part One are grouped together treatment of the subject, including definitions and theo-
because they provide a “wide lens” view of the field of ries about it, and the difference between authority and
police administration. Part One is usefully characterized power. A major section illustrates why police leaders fail
A01_SWAN4056_09_SE_FM.indd 26 25/08/2018 07:41

P re fac e xxvii
because those lessons are often more illuminating than traditional and resist change has been dismissed by a
content about what leaders “should” do. Remember the newer reality: The pace of change in law enforcement
failed leadership section as “Thou shalt nots” to be rigor- is brisk, if not bordering on continuous. Candidates for
ously avoided. Chapter 8, “Planning and Decision Mak- police chief positions in departments of roughly 30 or
ing,” covers two related skills law enforcement leaders more are frequently specifically probed about how they
use to help create and sustain improvements. Chapter 9, would go about changing a police agency, the subject of
Human Resource Management, provides the knowledge Chapter 15, “Organizational Change.”
necessary to direct the HR program, including the maze
of federal laws regulating it, as well as the numerous
moving parts HR has including recruitment, testing, selec-
Pedagogical Features
tion, training, and promotional testing. Law enforcement This book is rich with pedagogical or teaching tools
leaders need to be well versed in HR because so much is which were selected based on research on what tools
spent on it and so many things can go wrong and create were helpful. The teaching tools included in this book
liabilities. are as follows:
• Learning Objectives
Part Three: The Management At the beginning of each chapter there are behav-
of Police Organizations iorally stated learning objectives which can be used
Part Three focuses on a trio of key, organization-wide to focus students on what they should learn in the
management processes. Chapter 10, “Organizational chapter. In this regard learning objectives provide
and Interpersonal Communication,” is included because an important study guide. The objectives are stated
nothing can be started, guided, receive corrective action, in specific terms so that the learning outcome is
or be terminated without communication. Chapter 11, clearly understood and students will know what
“Labor Relations,” provides information regarding labor they should be able to do when finished with the
relations, including establishing the collective bargain- chapter. The learning objectives also serve as the
ing relationship, bargaining, and contract administra- basis for the chapter summary.
tion. While some law enforcement executives chafe at • Key Terms and Definitions
the existence of a union in their agency as a restriction The key terms in each chapter are in bold and at
on executive actions, others hold that a carefully nego- the end of each chapter there is an alphabetized
tiated contract make administration easier because so list of key terms. At the end of the book there is
many aspects of the management-union membership an alphabetized glossary of all key terms and their
relationship is regulated in clear terms. Police Chiefs definitions. This feature eliminates the need to
and Sheriffs know that their agencies run on three search several previous chapters looking for the
things: staff, information, and money. When b udgets definition of a term
are slashed, the result is fewer officers and deputies • Photographs, Tables, and Figures
to protect the same area and fewer dollars to ana-
The book is replete with these three types of
lyze information. While volunteers can be trained to
items learning tools. Many of the photographs
perform some tasks, severe budget cuts translate into
have not appeared in other criminal justice books
reduced or entirely eliminated functions. In the last sev-
and some of the tables and figures were prepared
eral years, some police budgets were cut to the extent
by the authors and are unique to this work. The
the agencies couldn’t provide 24-hour police services.
photographs, tables, and figures compliment the
Such things explain why knowledge about, and skill in
narrative content.
financial management is one of the premier attributes of
law enforcement leaders and why Chapter 12, Financial • Quick Fact Boxes
Management, is so important. These boxes are short, informative, and interest-
ing supplements to the content of a chapter, e.g. in
Part Four: Organizational Issues Chapter 1, “The Evolution of Police Administration,”
This concluding part contains three chapters that are there is a biographical sketch of August Vollmer. If
grouped together by being specific issues that touch the it appeared in the narrative, the flow of the chapter
entire law enforcement organization. Chapter 13, “Stress would be disrupted, but the information is illuminat-
and Police Personnel,” effects all sworn personnel and ing and therefore deserved a place in the chapter.
often civilian employees as well. Negative stress degrades Each chapter contains several Quick Facts Boxes.
individual and sometimes unit and agency functioning. • Box Items
Chapter 14, “Legal Aspects of Administration,” centers on These boxes contain more extended informative,
police civil liability, which often arises out of the misuse than quick fact boxes and provide relevant supple-
of force and high speed pursuits. In recent decades, mental information to the chapter. Each chapter has
the old refrain that law enforcement agencies are very multiple box items.

xxviii Pre fa ce
• Chapter Summary on paper, electronically, or online. It provides state-of-the-art

The chapter summary is based on the learning objec- features for viewing and editing test bank questions, drag-
tives and reinforces what the student has learned ging a selected question into a test you are creating, and
in completing the chapter. Each learning objective printing sleek, formatted tests in a variety of layouts. Select
is stated and then followed by a statement of what test items from test banks included with TestGen for quick
should have been learned by fulfilling that objective. test creation, or write your own questions from scratch.
• Chapter Review Questions TestGen’s random generator provides the option to display
different text or calculated number values each time ques-
The chapter review questions call attention to other
tions are used.
learning opportunities in the chapter that, arguably,
could have been included as learning objectives. PowerPoint Presentations. A PowerPoint lecture
These are important points of learning that will package is available for use in class.
facilitate additional student growth and can also be
To access supplementary materials online, instructors
the basis of classroom discussions and short essay
need to request an instructor access code. Go to www.
examination questions.
pearsonhighered.com/irc, where you can register for an
• Critical Thinking Exercises instructor access code. Within 48 hours after register-
Critical interest exercises promote student interest ing, you will receive a confirming email, including an
and participation. Each of the 15 chapters has two or instructor access code. Once you have received your
more critical thinking exercises that can be assigned code, go to the site and log on for full instructions on
to individual students or groups that report back on downloading the materials you wish to use.
their conclusions. This could be done in class or as
out-of-class experiences. They may also be used to
stimulate class discussions and involvement. Alternate Versions
eBooks. This text is also available in multiple eBook
Instructor Supplements formats. These are an exciting new choice for students
looking to save money. As an alternative to purchasing
Instructor’s Manual with Test Bank. Includes
the printed textbook, students can purchase an electronic
content outlines for classroom discussion, teaching sug-
version of the same content. With an eTextbook, students
gestions, and answers to selected end-of-chapter ques-
can search the text, make notes online, print out read-
tions from the text. This also contains a Word document
ing assignments that incorporate lecture notes, and
version of the test bank.
bookmark important passages for later review. For more
TestGen. This computerized test generation system gives information, visit your favorite online eBook reseller or
you maximum flexibility in creating and administering tests visit www.mypearsonstore.com.

Acknowledgments
Although it is insufficient compensation for their gracious of Scott Wofford, Radio Shack, Fort Worth, Texas; Special
assistance, we wish to recognize here the individuals and Agent Jimmy Capra (retired) and the Drug Enforcement
organizations who helped to make this book a reality. Administration; our colleague of 20 years, Jim C ampbell,
Unless asked to do otherwise, we have indicated their East Carolina University; Chief John Kerns, Sacramento,
organizational affiliation at the time they made their con- California, Police Department; U.S. Secret Service;
tribution. Bureau of Alcohol, Tobacco, Firearms, and Explosives;
We thank Will Aitchison for his extensive contributions Deputy Superintendent Jim Finley, Illinois State Police;
to Chapter 11, Labor Relations. He also allowed us to Drs. Walter Booth and Chris Hornickj, Multidimensional
draw from his previous works, and for this we are greatly Research Association, Aurora, Colorado; Lieutenant Rick
indebted. Frey, Broward County, Florida, Sheriff’s Office; Captain
We also wish to thank our long-time secretary, Sharon Lawrence Akley, St. Louis, Missouri, Metro Police Depart-
Ostermann, for typing considerable portions of the ment; the Maricopa, Arizona, Sheriff’s Office; Inspector
9th edition, as well as providing invaluable assistance in Vivian Edmond, Michelle Andonian, and Commander
conducting the necessary research to be certain this edi- Dorothy Knox, Detroit, Michigan, Police Department;
tion contained the most current and accurate information Major Herman Ingram, Baltimore, Maryland, Police Depart-
in policing today. Her pleasant attitude and considerable ment; Commissioner Morgan Elkins and Captain Dennis
intelligence made this revision a much easier task. Goss, Kentucky State Police; St. Paul, Minnesota, Police
We would like to thank the following reviewers for their Department; Thomas J. Deakin, John E. Ott, editor of the
comments and suggestions: Elizabeth Bondurant, Mercer FBI Law Enforcement Bulletin, all three with the Federal
County Community College; Frederick Crawford, Missouri Bureau of Investigation; our good friend, Bill Tafoya,
Baptist University; Jay Kramer, Central Georgia Technical the “father” of futuristics in policing; our lifelong friend,
College; Ted Purtle, Austin Community College; Michael Ron Lynch, University of North Carolina; the California
Raymond, New Hampshire Technical College-Concord’s Highway Patrol; Norma Kane, the Kansas City, Missouri,
Community College and John Reinholz, Bryant and S tratton Police Department; the San Diego, California, Police
College. Department; the Texas Department of Public Safety: the
A special thanks to these individuals: Sal Territo, Philadelphia Police Department; National Tactical Officers
Maryellin Territo, Jeannie -Griffin, Linda Pittman, Dwayne Association; Lieutenant James B. Bolger, Michigan State
Shumate, and Donna McKnight, who provided typing Police; the Denver Police Department; Colonel Carroll D.
and -research assistance and made innumerable contri- Buracker and Scott Boatright, Fairfax County, Virginia,
butions, not only for this edition but for many previous Police Department; Major Dave Sturtz, Ohio State Patrol;
ones as well. the National Consortium for Justice Information and
For as long as this book has been in print our col- Statistics, Sacramento, California; Phoenix, Arizona, Police
league and long-time friend, Dr. Max Bromley, Associate and Fire Departments; Lieutenant Mark Stallo, Dallas,
Professor, Department of Criminology, University of South Texas Police Department; Don Fish, Florida Police Benev-
Florida has provided us with information about the most olent Association; Captain Keith Bushey, Los Angeles,
current research on many aspects of police administra- California, Police Department; Deputy Chief Kevin

tion. His generosity and friendship are much appreciated. Stoeher, Mt. Lebanon, Pennsylvania, Police Department;
We also wish to thank Major Lee Bercaw of the Tampa, Karen Anderson and Lisa Bird, LAN Publications Group;
Florida Police Department who provided us with his Lieutenant Rex Splitt, Craig, Colorado, Police Department;
agency’s comprehensive after-action report on how the Chief R. E. Hansen and Cynthia Shaw, Fayetteville, North
Tampa Police Department’s handling of the 2012 Republi- Carolina, Police Department; Officer David Hoffman,
can National Conference. This document discusses every Anchorage, Alaska, Police Department; LaNell Thornton,
aspect of good planning and will no doubt be a valu- Chief Paul Annee, and Lieutenant Michael Spears, India-
able document and template for other agencies planning napolis, Indiana, Police Department; Lexington-Fayette,
major events. This information was incorporated into
Kentucky, Urban County Police Department; Environ-
Chapter 8, Planning and Decision Making. mental Systems Research Institute, Redlands, California;
Many people helped strengthen this book by Nancy Brandon, Metro Software, Park City, Utah; Larry
providing critiques, photographs, and suggestions. We Yium, Director of Budget and Finance, Houston, Texas;
have elected to indicate their organizational affiliation Lois Roethel and Leslie Doak, Las Vegas, Nevada, Police
when they helped us, even though some have moved Department; the Knox County, Maine, Sheriff’s Depart-
on to other responsibilities. We are grateful for the help ment; Chief Jim Wetherington, a mentor, and Assistant
xxix

xxx Ackn o w l e d g m e n ts
Chief Sam Woodall, Semper Fi, Columbus, Georgia, Police Assistant Chief Pete Pacillas, and Ms. Jennifer Callan,
Department; Sergeant Mike Parker, Los Angeles County El Paso, Texas, Police Department; Dr. Kelley Stone,
Sheriff’s Office; Major John F. Meeks, Baltimore, Mary- former Fusion Center Director at Collin County, Texas,
land, Police Department; Mary Foss and Chief Randall now with IBM; Dr. David Carter, Michigan State Univer-
Gaston, -Anaheim, California, Police Department; Captain sity; Dr. John Liederbach, Bowling Green State University;
Tom Brennan, Newark, New Jersey, Police Department; Dr. Shelly Greenberg, Johns Hopkins University; Dr. Geoff
Lieutenant Robert O’Toole, Boston, Massachusetts, Police Alpert, University of South Carolina; Dr. James Marquardt,
Department; Commander Tim McBride, Los Angeles, Lamar University; and our colleagues and friends who
California, Police Department; Sergeant Patrick Melvin, have been involved in police training and education for
Phoenix, Arizona, Police Department; Officer Matthew the last forty years, Mr. Lonnie Wilder, Mr. Norm Willox,
Rastovski, Birmingham, Alabama, Police Department; and Mr. Dave Willox.
Lieutenant Doug Cain, Baton Rouge, Louisiana, Police Lieutenant Stephen Hartnett of the Tampa, Florida,
Department; Sheriff Leroy D. Baca and Natalie Salazar Police Department -provided us with material on the

Macias, Los Angeles County Sheriff’s Office; Chief P. psychological testing of police applicants. Chief of Police
Thomas Shanahan and Sergeant James Cifala, Ann Arundel Ronald Miller and Major Roger Villanueva of the Kansas
County Police Department, Maryland; Chief Harold L. City, Kansas, Police Department provided us with infor-
Hurts, Police Chief Danny Garcia (retired), Phoenix, mation on their agency’s college incentive and -college
Arizona, Police Department; Amy M. Pich, Seattle, Wash- tuition assistance programs. Chief of Police Bill McCarthy
ington, Police Department; Deputy Chief Raymond D. of the City of Des Moines, Iowa, Police Department pro-
Schultz, Albuquerque, New Mexico, Police Department; vided us with information on the agency’s salary sched-
Sheriff Cal Henderson and Detective Herb Metzger, Hills- ule. Cynthia Brown, publisher of American Police Beat,
borough County Sheriff’s Office, Tampa, Florida; Sergeant Cambridge, Massachusetts, gave us permission to use nu-
Robert J. Delaney, Chicago, Illinois, Police Department; a merous articles and photographs in several of our chap-
very special thanks to Dr. Denis Dean, Dr. John Worrall ters. Melonie Hamilton with Police Magazine, Torrence,
and Dr. Galia Cohen, The University of Texas at Dallas, California, assisted us in obtaining photos in relation to
for their continued support at UT-Dallas, and their will- our discussion of assessment centers, as well as our -dis-
ingness to review specific parts of this text; Sergeant Don cussion of Internal Affairs investigations.
Pahlke (retired), Portland, Oregon, Police Bureau, Bob’s We would also like to thank Chief Joe Lumpkin of
partner in a squad car, who taught Bob what real policing the Savannah, Georgia, Police Department for his con-
was all about; former Chief David M. Kunkle, Chief tinued good counsel and information on the subject of
David O. Brown, Assistant Chief Floyd Simpson (rest police administration and Chief Dwayne , formerly Direc-
in peace, my friend), Lt. Ronald Thomasson, Lt. Dianna tor of Public Safety in Cordele, Georgia, Police Depart-
Watts, and Mr. Michael Freeman, Dallas, Texas Police ment for his continued work as the president of the
Department; Chief Brian Harvey, Allen Police Depart- Georgia Association of Chiefs of Police. We also thank
ment, retired Chief Lowell Cannaday, Irving, Texas, Police Deanette L. Palmer, Ph.D., a psychologist with the Spo-
Department; Chief Jimmy Perdue, North Richland Hills, kane, W ashington, Police Department. We wish to thank
Texas, Police Department; former Chief and good friend, Meredith A. Bowman of the Southeastern Public Safety
Mr. Darrell Stephens, Charlotte-Mecklenburg, North Caro- Institute, St. Petersburg College, St. Petersburg, Florida,
lina Police Department, now Executive Director of Major and our colleague Jim Sewell, Florida Department of Law
Cities Chiefs of Police Association; former Commissioner Enforcement, who has also contributed to this book. And
Paul Evans, Boston Police Department; former Chief a very special thanks to Ms. Jennifer Davis-Lamb, Caruth
Bob Olsen, Minneapolis, Minnesota, Police Department; Police Institute, for her outstanding research and energy
Mr. Gil Kerlikowske, former Director of National Drug on this project. Her hard work helped improve the overall
Policy, now Commissioner of U.S. Customs and Border quality of this book. Lastly, we would like to thank our
Protection; Sheriff Jerry Keller (retired), Las Vegas Metro- editor, Gary Bauer, for his continued guidance, support,
politan Police Department; Sheriff Lupe Valdez, Dallas patience, and encouragement. It has been a pleasure
County Sheriff’s Office; Chief Bob Lehner, Elk Grove, Cali- working with him.
fornia Police Department; Dean Victor Strecher (retired), Charles R. “Mike” Swanson
Sam Houston State University; Mr. Bill Hill, former Dallas Leonard Territo
County District Attorney, Dallas Texas; Chief Greg Allen, Robert W. Taylor
A01_SWAN4056_09_SE_FM.indd 30 25/08/2018 07:42

About the Authors
Charles R. “Mike” Swanson enlisted in the Marine for 20 years of service to the association and other con-
Corps at 17, after which he was a uniformed officer and tributions and later named their first honorary Chief of
detective with the Tampa Police Department. As Dep- Police. Mike is the recipient of the Academy of Criminal
uty Director of Florida Governor Kirk’s Council on Law Justice Sciences’ O. W. Wilson Award for distinguished
Enforcement and Criminal Justice he led a central and police research. The University of Georgia twice granted
seven public safety regional offices to innovations in ser- him Distinguished Service Awards and a Walter Bernard
vice delivery and also advised the Governor on policy Hill Award for Distinguished Achievement in Public Ser-
issues. vice. The Governors of Florida, Kentucky, and Georgia
Subsequently, he taught criminal justice courses for have issued proclamations recognizing his contributions
a year at East Carolina University and then joined the to law enforcement in their states.
University of Georgia’s Vinson Institute of Government Mike holds a B.S. and M.S. in Criminology from Florida
working full-time with Georgia law enforcement agen- State University and a Ph.D in Political Science with an empha-
cies in solving practical problems and conducting agency sis in public administration from the University of Georgia.
assessments. In more than 200 seminars, he also trained Leonard Territo is presently a distinguished professor
over 10,000 police officers from over 40 states in topics at Saint Leo University, Saint Leo, Florida, and professor
ranging from advanced homicide investigation to orga- emeritus in the Department of Criminology, at the Uni-
nizational theory. Mike also designed and led training in versity of South Florida, Tampa, Florida. He was previ-
China’s Shanghai Municipal Institute for senior govern- ously the chief deputy (undersheriff) of the Leon County
mental officials and has been a consultant to agencies in Sheriff’s Office in Tallahassee, Florida. He also served for
the United States, ranging from Elizabeth, New Jersey to almost nine years with the Tampa Police Department as
the Multnomah Department of Public Safety in Portland, a patrol officer, motorcycle officer, and homicide detec-
Oregon. He has written over 100 consulting reports. tive. He is the former chairperson of the Department of
Mike has extensive experience in police promotional Police Administration and director of the Florida Institute
systems. Notably, as an expert, he led a state patrol agency for Law Enforcement at St. Petersburg Junior College, St.
out of federal district court, designing and administer- Petersburg, Florida.
ing the new promotional system he developed for some In addition to writing nearly 50 articles, book chap-
10 years. The Commissioner of the state patrol described ters, and technical reports, he has authored, co-authored
it as “Our agency’s most important development in and edited twelve books, including Criminal Investiga-
human resource management in the last 50 years.” None tion, which is going into its 12th edition; International
of the approximately 14 agencies for which he designed Sex Trafficking of Women and Children: Understanding
promotional systems has been successfully sued. Mike the Global Epidemic, which is in its 2nd edition; Criminal
has extensive experience in job analysis and test valida- Investigation of Sex Trafficking in America; The Interna-
tion, developing and administering more than 100 writ- tional Trafficking of Human Organs: A Multi-Disciplinary
ten tests, and exercises for oral, boards and assessment Perspective; Crime and Justice in America, which is in
centers. He has also trained assessment center assessors its 6th edition; Stress Management in Law Enforcement,
from more than 20 states. which is in its 3rd edition; Police Civil Liability; College
Rising through the ranks to retire as the Interim Direc- Crime and Prevention and Personal Safety Awareness;
tor of the Vinson Institute, Mike led its 183 faculty and Stress and Police Personnel; The Police Personnel Selec-
staff members in a state-wide program of technical assis- tion Process; Hospital and College Security Liability; and
tance, training, and research for state and local units of a crime novel, Ivory Tower Cop, which was inspired by
government in Georgia. a true story. His books have been used in more than
Among his other publications are several other a thousand colleges and universities in 50 states, and
co-authored books, Terrorism, Intelligence and Home-
his writings have been used and referenced by both
land Security (First Edition, 2015), Criminal Investigation academic and police departments in 14 countries includ-
(12th edition in preparation), The Police Personnel Selec- ing Australia, Barbados, Canada, Chile, C zechoslovakia,
tion Process (1980) Introduction to Criminal Justice, (1979) England, France, Germany, Israel, the Netherlands,

and Court Administration: Issues and Responses (1980). Poland, Saudi Arabia, South Korea, and Spain.
Both Police Administration and Criminal Investigation His teaching awards include being selected from
were previously translated into Mandarin. The Georgia among 200 criminal justice educators from the state of
Association of Chiefs of Police twice recognized his con- Florida as the Outstanding Criminal Justice Educator of
tributions to the association. He received the first award the Year by the College of Social and Behavioral Sciences
xxxi

xxxii Ab out the A utho r s
at the University of South Florida. He has been given several heads of state in that region. He has acted as a
awards by both the Florida Police Chiefs Association and consultant to numerous federal, state and local a gencies,
the Tampa Police Academy for his years of teaching and and since September 11, 2001, Dr. Taylor has been a
meritorious services; he was given an award for Distin- consultant to the U.S. Department of Justice working with
guished Scholarly Publications by Saint Leo University, the Institute for Intergovernmental Research (IIR). He has
Saint Leo, Florida; he has been selected for inclusion in also worked extensively throughout the Middle East, espe-
Who’s Who in American Law Enforcement, and he has cially in the countries of Turkey, United Arab E mirates,
recently been given a Lifetime Achievement Award from Bahrain, and Lebanon. He has been an instructor for the
the Department of Criminology at the University of South U.S. Department of State, Anti-Terrorism Assistance –ATA
Florida. Program (2001–06) and taught internationally in the Exec-
Robert W. Taylor is currently a Professor in the utive Seminar on Cyber Terrorism presented to executives
Criminology Program at The University of Texas at Dal- of foreign governments. Dr. Taylor has also worked exten-
las. Previous to this position, he was the Director of the sively with the U.S. intelligence community. He holds
Executive Masters in Justice Administration and Lead- appropriate top secret national security clearances through
ership Program and the former Program Head for the the JPASS system (currently archived).
Public Affairs Program at UT-Dallas. Both are academic Dr. Taylor has authored or co-authored over two hun-
programs integrating the traditions of management, gov- dred articles, books, and manuscripts. Most of his publi-
ernmental affairs, policy analysis, and decision science in cations focus on police administration and management,
the public sector. The program hosted one of the largest police procedures, international and domestic terrorism,
graduate degree programs on campus including Doctoral drug trafficking, and criminal justice policy. His articles
(Ph.D.) and Master’s Degrees in Public Affairs and Public appear in numerous journals including Defense Analy-
Administration. sis (University of Oxford, England Press), the ANNALS
From January 2008 through 2010, Dr. Taylor was the (American Academy of Political and Social Sciences),
Executive Director of the W.W. Caruth Jr. Police Institute Police Quarterly, Crime and Delinquency, and the Police
at Dallas (CPI). The Institute was established through a Chief (International Association of Chiefs of Police). Dr.
$9.5 million grant from the Communities Foundation of Taylor is senior author of four best-selling textbooks,
Texas. Dr. Taylor was a principle party to the develop- Terrorism, Intelligence and Homeland Security (Upper
ment of the Institute and was appointed the founding Saddle River, NJ: Pearson Publishing, 2016); Digital Crime
director by the University of North Texas System. The and Digital Terrorism, 3rd edition (Pearson, 2014); Juve-
primary mission of the Institute is to provide direction nile Justice: Policies, Practices and Programs, 4th edition
and coordination of major training and research projects (New York: McGraw-Hill, 2014); and Police Patrol Allo-
for the Dallas Police Department. The Institute represents cation and Deployment (Pearson, 2011). He is also the
a national “think tank” on policing strategies focused on co-author of two truly landmark textbooks, Police Admin-
major urban cities in the United States. Dr. Taylor remains istration: Structures, Processes, and Behaviors, 8th edition
a “Scholar-in-Residence” at the Institute. From 1996 to (Pearson Publishing, 2012); and Criminal Investigation
2008, Dr. Taylor was professor and chair of the Depart- 11th edition (McGraw-Hill, 2012). These texts are used in
ment of Criminal Justice at the University of North Texas. over 700 universities, colleges, and police departments
He served in this capacity for thirteen years, and under his throughout the United States, Europe and China, and
direction, the Department gained national prominence. continue to be developed into new editions.
In 1995, Bob took a leave of absence from univer- Bob has an extensive background in academic and
sity administration and teaching, to join Emergency professional criminal justice, having taught at four major
Resources International, Inc., the parent company of universities and serving as a sworn police officer and major
the famed “Red Adair” firefighters. His duties as Senior crimes detective (lateral rank of sergeant) in Portland,
Vice-
President, Crisis Management Division, included Oregon for over six years. In 1984, he was appointed as a
liaison with foreign governments and authorities, exten- Research Fellow at the International Center for the Study
sive contract negotiations, and the strategic development of Violence at the University of South Florida, Tampa,
of a world-wide communication and information system. Florida, conducting various studies involving international
Bob’s major project was acting as team leader on the and domestic terrorism, police training and management,
largest oil spill in history (3 million bbls), located in the public violence and homicide, computerized mapping,
remote Nenets District of Russia, over 200 miles north of and international drug trafficking. He continues to conduct
the Arctic Circle. research in these areas and is the recipient of numerous
For the past forty years, Bob has studied criminal justice grants and contracts (over $18 million in funded projects).
administration and specifically, police responses to crime His latest work has concentrated in four areas: 1) Police
and terrorism, focusing on issues in the Middle East. He has use of force and improved tactical/strategic improvement
traveled extensively throughout the Middle East, meeting through advanced training, decision-making, leadership

Ab ou t t h e A u t h or s xxxiii
and management practices particularly addressing areas Award ‘in recognition of his outstanding contribution to
of officer violence and officer-involved shootings; 2) Inter- police education, research and practice.’
national terrorism, especially Middle-Eastern groups, and Dr. Taylor has been a consultant to the U.S. Army and
the spread of radical Islam; 3) Evaluation of community the U.S. Marine Corp; the U.S. Department of Homeland
policing, evidence-based policing, and other predictive Security, the U.S. Department of Treasury, Federal Law
policing strategies in the United States; and 4) Intelligence Enforcement Training Center, the U.S. Secret Service,
analysis, fusion centers, and decision-making particularly the Bureau of Alcohol, Tobacco, and Firearms, the U.S.
during protracted conflict or crisis situations. Department of Justice, the Federal Bureau of Investigation,
In 2004, Dr. Taylor was asked by the International Jus- the Drug Enforcement Administration, agencies within
tice Mission in Washington, D.C. to assist in the training the U.S. intelligence community, the Police Foundation,
of the Cambodian National Police on child sex slavery the Police Executive Research Forum – PERF, the Inter-
and human trafficking as part of a large project funded national Association of Chiefs of Police, and numerous
through the U.S. Department of State ($1 million). His state and local municipalities and private corporations.
interest and research in this area has led to a leadership He has also conducted significant training in the United
role in designing and developing training efforts in the States protectorates of the U.S. Virgin Islands, Guam and
United States aimed at raising awareness of the human Saipan, and the countries of Canada, England, France,
trafficking tragedy for American law enforcement officers, Switzerland, Thailand, Cambodia, Barbados, Northern

funded in part through the U.S. Department of Justice. Cyprus, Bahrain, Venezuela, Russia, Finland, United Arab
Dr. Taylor focuses on the nexus between human traffick- Emirates, Kenya, Singapore and Turkey. He is an active
ing, drug trafficking and the financing of terrorist inci- member of the Academy of Criminal Justice Sciences
dents internationally and domestically. (elected National Chair of the ACJS Police Section - 2002)
In 2003, Dr. Taylor was awarded the University of North and the American Society of Criminology.
Texas, Regent’s Lecture Award for his work in the Middle Dr. Taylor is a graduate of Michigan State University
East. In March 2008, the Academy of Criminal Justice (Master of Science-1973) and Portland State University
Sciences presented Bob with the prestigious O.W. Wilson (Doctor of Philosophy-1981).

Part 1 Foundations
Chapter 1 | The Evolution of Police Administration
Chapter 2 | Policing Today
Chapter 3 | Intelligence, Terrorism, and Homeland Security
Chapter 4 | Politics and Police Administration
These first four chapters are foundational in that they tell us how law enforcement got to
where it is today, explain current police operational philosophies, describe how national
and domestic terrorism have impacted on the role of our police agencies, and discuss the
continuing importance of politics. This section also introduces terms and concepts referred
to in subsequent chapters.
Chapter 1, “The Evolution of Police Administration,” differs from other histories of
policing because it has a specific, rather than a general, focus. It explains policing’s trials and
tribulations as it morphed from a colonial night watchman system into complex organizations
testing new philosophies. Also chronicled are the social, political, economic, and technological
forces that continuously shape and reshape American policing. The underlying thesis of this
chapter is that policing is like a sandbar in a river, being shaped and reshaped by the currents
of the society in which it is embedded.
Chapter 2, “Policing Today,” examines in greater detail the shifts in operational
philosophies identified in the previous chapter. More specifically, as police departments
came to grips with the limitations of the traditional strategies of random patrol and
responding to incidents, it opened the door to new ways of delivering law enforcement
services, such as community policing and evidence based policing. This chapter provides
a strong u nderstanding of the use and limitations of these different operational philoso-
phies and strategies aimed at lowering crime and providing better police services to our
communities.
Chapter 3, “Intelligence, Terrorism, and Homeland Security,” addresses the s ignificant
shifts that have occurred in law enforcement in the wake of the 9/11 attacks on this
country, as well as the threats posed by the Mexican drug cartels operating near our
border, “
homegrown” terrorists, and recent trends in radical Islamic groups, including
the surging ISIS. This chapter vividly illustrates the dangers of international terrorism,
domestic right-wing hate groups, left-wing anarchists, and ecoterrorists.
Chapter 4 “Politics and Police Administration,” ends Part One. It explains various local
forms of government and key offices. This chapter also takes a pragmatic view of how
politics affects law enforcement agencies. There is a significant case study of the Baltimore
Police Department, the community, the riots, and the criminal charges placed against six
officers in the death of Freddie Gray, as well as coverage of other similar recent incidents.
In the wake of police shootings of African American men in 2014–2015 a movement toward
requiring police officers to wear body cameras emerged, which is also examined.
M01_SWAN4056_09_SE_C01.indd 2 7/8/16 12:59 PM

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DANCE ON STILTS AT THE GIRLS’ UNYAGO, NIUCHI
Newala, too, suffers from the distance of its water-supply—at least

the Newala of to-day does; there was once another Newala in a lovely
valley at the foot of the plateau. I visited it and found scarcely a trace
of houses, only a Christian cemetery, with the graves of several
missionaries and their converts, remaining as a monument of its
former glories. But the surroundings are wonderfully beautiful. A
thick grove of splendid mango-trees closes in the weather-worn
crosses and headstones; behind them, combining the useful and the
agreeable, is a whole plantation of lemon-trees covered with ripe
fruit; not the small African kind, but a much larger and also juicier
imported variety, which drops into the hands of the passing traveller,
without calling for any exertion on his part. Old Newala is now under
the jurisdiction of the native pastor, Daudi, at Chingulungulu, who,
as I am on very friendly terms with him, allows me, as a matter of
course, the use of this lemon-grove during my stay at Newala.
FEET MUTILATED BY THE RAVAGES OF THE “JIGGER”
(Sarcopsylla penetrans)
The water-supply of New Newala is in the bottom of the valley,

some 1,600 feet lower down. The way is not only long and fatiguing,
but the water, when we get it, is thoroughly bad. We are suffering not
only from this, but from the fact that the arrangements at Newala are
nothing short of luxurious. We have a separate kitchen—a hut built
against the boma palisade on the right of the baraza, the interior of
which is not visible from our usual position. Our two cooks were not
long in finding this out, and they consequently do—or rather neglect
to do—what they please. In any case they do not seem to be very
particular about the boiling of our drinking-water—at least I can
attribute to no other cause certain attacks of a dysenteric nature,
from which both Knudsen and I have suffered for some time. If a
man like Omari has to be left unwatched for a moment, he is capable
of anything. Besides this complaint, we are inconvenienced by the
state of our nails, which have become as hard as glass, and crack on
the slightest provocation, and I have the additional infliction of
pimples all over me. As if all this were not enough, we have also, for
the last week been waging war against the jigger, who has found his
Eldorado in the hot sand of the Makonde plateau. Our men are seen
all day long—whenever their chronic colds and the dysentery likewise
raging among them permit—occupied in removing this scourge of
Africa from their feet and trying to prevent the disastrous
consequences of its presence. It is quite common to see natives of
this place with one or two toes missing; many have lost all their toes,
or even the whole front part of the foot, so that a well-formed leg
ends in a shapeless stump. These ravages are caused by the female of
Sarcopsylla penetrans, which bores its way under the skin and there
develops an egg-sac the size of a pea. In all books on the subject, it is
stated that one’s attention is called to the presence of this parasite by
an intolerable itching. This agrees very well with my experience, so
far as the softer parts of the sole, the spaces between and under the
toes, and the side of the foot are concerned, but if the creature
penetrates through the harder parts of the heel or ball of the foot, it
may escape even the most careful search till it has reached maturity.
Then there is no time to be lost, if the horrible ulceration, of which
we see cases by the dozen every day, is to be prevented. It is much
easier, by the way, to discover the insect on the white skin of a
European than on that of a native, on which the dark speck scarcely
shows. The four or five jiggers which, in spite of the fact that I
constantly wore high laced boots, chose my feet to settle in, were
taken out for me by the all-accomplished Knudsen, after which I
thought it advisable to wash out the cavities with corrosive
sublimate. The natives have a different sort of disinfectant—they fill
the hole with scraped roots. In a tiny Makua village on the slope of
the plateau south of Newala, we saw an old woman who had filled all
the spaces under her toe-nails with powdered roots by way of
prophylactic treatment. What will be the result, if any, who can say?
The rest of the many trifling ills which trouble our existence are
really more comic than serious. In the absence of anything else to
smoke, Knudsen and I at last opened a box of cigars procured from
the Indian store-keeper at Lindi, and tried them, with the most
distressing results. Whether they contain opium or some other
narcotic, neither of us can say, but after the tenth puff we were both
“off,” three-quarters stupefied and unspeakably wretched. Slowly we
recovered—and what happened next? Half-an-hour later we were
once more smoking these poisonous concoctions—so insatiable is the
craving for tobacco in the tropics.
Even my present attacks of fever scarcely deserve to be taken
seriously. I have had no less than three here at Newala, all of which
have run their course in an incredibly short time. In the early
afternoon, I am busy with my old natives, asking questions and
making notes. The strong midday coffee has stimulated my spirits to
an extraordinary degree, the brain is active and vigorous, and work
progresses rapidly, while a pleasant warmth pervades the whole
body. Suddenly this gives place to a violent chill, forcing me to put on
my overcoat, though it is only half-past three and the afternoon sun
is at its hottest. Now the brain no longer works with such acuteness
and logical precision; more especially does it fail me in trying to
establish the syntax of the difficult Makua language on which I have
ventured, as if I had not enough to do without it. Under the
circumstances it seems advisable to take my temperature, and I do
so, to save trouble, without leaving my seat, and while going on with
my work. On examination, I find it to be 101·48°. My tutors are
abruptly dismissed and my bed set up in the baraza; a few minutes
later I am in it and treating myself internally with hot water and
lemon-juice.
Three hours later, the thermometer marks nearly 104°, and I make
them carry me back into the tent, bed and all, as I am now perspiring
heavily, and exposure to the cold wind just beginning to blow might
mean a fatal chill. I lie still for a little while, and then find, to my
great relief, that the temperature is not rising, but rather falling. This
is about 7.30 p.m. At 8 p.m. I find, to my unbounded astonishment,
that it has fallen below 98·6°, and I feel perfectly well. I read for an
hour or two, and could very well enjoy a smoke, if I had the
wherewithal—Indian cigars being out of the question.
Having no medical training, I am at a loss to account for this state
of things. It is impossible that these transitory attacks of high fever
should be malarial; it seems more probable that they are due to a
kind of sunstroke. On consulting my note-book, I become more and
more inclined to think this is the case, for these attacks regularly
follow extreme fatigue and long exposure to strong sunshine. They at
least have the advantage of being only short interruptions to my
work, as on the following morning I am always quite fresh and fit.
My treasure of a cook is suffering from an enormous hydrocele which
makes it difficult for him to get up, and Moritz is obliged to keep in
the dark on account of his inflamed eyes. Knudsen’s cook, a raw boy
from somewhere in the bush, knows still less of cooking than Omari;
consequently Nils Knudsen himself has been promoted to the vacant
post. Finding that we had come to the end of our supplies, he began
by sending to Chingulungulu for the four sucking-pigs which we had
bought from Matola and temporarily left in his charge; and when
they came up, neatly packed in a large crate, he callously slaughtered
the biggest of them. The first joint we were thoughtless enough to
entrust for roasting to Knudsen’s mshenzi cook, and it was
consequently uneatable; but we made the rest of the animal into a
jelly which we ate with great relish after weeks of underfeeding,
consuming incredible helpings of it at both midday and evening
meals. The only drawback is a certain want of variety in the tinned
vegetables. Dr. Jäger, to whom the Geographical Commission
entrusted the provisioning of the expeditions—mine as well as his
own—because he had more time on his hands than the rest of us,
seems to have laid in a huge stock of Teltow turnips,[46] an article of
food which is all very well for occasional use, but which quickly palls
when set before one every day; and we seem to have no other tins
left. There is no help for it—we must put up with the turnips; but I
am certain that, once I am home again, I shall not touch them for ten
years to come.
Amid all these minor evils, which, after all, go to make up the
genuine flavour of Africa, there is at least one cheering touch:
Knudsen has, with the dexterity of a skilled mechanic, repaired my 9
× 12 cm. camera, at least so far that I can use it with a little care.
How, in the absence of finger-nails, he was able to accomplish such a
ticklish piece of work, having no tool but a clumsy screw-driver for
taking to pieces and putting together again the complicated
mechanism of the instantaneous shutter, is still a mystery to me; but
he did it successfully. The loss of his finger-nails shows him in a light
contrasting curiously enough with the intelligence evinced by the
above operation; though, after all, it is scarcely surprising after his
ten years’ residence in the bush. One day, at Lindi, he had occasion
to wash a dog, which must have been in need of very thorough
cleansing, for the bottle handed to our friend for the purpose had an
extremely strong smell. Having performed his task in the most
conscientious manner, he perceived with some surprise that the dog
did not appear much the better for it, and was further surprised by
finding his own nails ulcerating away in the course of the next few
days. “How was I to know that carbolic acid has to be diluted?” he
mutters indignantly, from time to time, with a troubled gaze at his
mutilated finger-tips.
Since we came to Newala we have been making excursions in all
directions through the surrounding country, in accordance with old
habit, and also because the akida Sefu did not get together the tribal
elders from whom I wanted information so speedily as he had
promised. There is, however, no harm done, as, even if seen only
from the outside, the country and people are interesting enough.
The Makonde plateau is like a large rectangular table rounded off
at the corners. Measured from the Indian Ocean to Newala, it is
about seventy-five miles long, and between the Rovuma and the
Lukuledi it averages fifty miles in breadth, so that its superficial area
is about two-thirds of that of the kingdom of Saxony. The surface,
however, is not level, but uniformly inclined from its south-western
edge to the ocean. From the upper edge, on which Newala lies, the
eye ranges for many miles east and north-east, without encountering
any obstacle, over the Makonde bush. It is a green sea, from which
here and there thick clouds of smoke rise, to show that it, too, is
inhabited by men who carry on their tillage like so many other
primitive peoples, by cutting down and burning the bush, and
manuring with the ashes. Even in the radiant light of a tropical day
such a fire is a grand sight.
Much less effective is the impression produced just now by the
great western plain as seen from the edge of the plateau. As often as
time permits, I stroll along this edge, sometimes in one direction,
sometimes in another, in the hope of finding the air clear enough to
let me enjoy the view; but I have always been disappointed.
Wherever one looks, clouds of smoke rise from the burning bush,
and the air is full of smoke and vapour. It is a pity, for under more
favourable circumstances the panorama of the whole country up to
the distant Majeje hills must be truly magnificent. It is of little use
taking photographs now, and an outline sketch gives a very poor idea
of the scenery. In one of these excursions I went out of my way to
make a personal attempt on the Makonde bush. The present edge of
the plateau is the result of a far-reaching process of destruction
through erosion and denudation. The Makonde strata are
everywhere cut into by ravines, which, though short, are hundreds of
yards in depth. In consequence of the loose stratification of these
beds, not only are the walls of these ravines nearly vertical, but their
upper end is closed by an equally steep escarpment, so that the
western edge of the Makonde plateau is hemmed in by a series of
deep, basin-like valleys. In order to get from one side of such a ravine
to the other, I cut my way through the bush with a dozen of my men.
It was a very open part, with more grass than scrub, but even so the
short stretch of less than two hundred yards was very hard work; at
the end of it the men’s calicoes were in rags and they themselves
bleeding from hundreds of scratches, while even our strong khaki
suits had not escaped scatheless.
NATIVE PATH THROUGH THE MAKONDE BUSH, NEAR

MAHUTA
I see increasing reason to believe that the view formed some time
back as to the origin of the Makonde bush is the correct one. I have
no doubt that it is not a natural product, but the result of human
occupation. Those parts of the high country where man—as a very
slight amount of practice enables the eye to perceive at once—has not
yet penetrated with axe and hoe, are still occupied by a splendid
timber forest quite able to sustain a comparison with our mixed
forests in Germany. But wherever man has once built his hut or tilled
his field, this horrible bush springs up. Every phase of this process
may be seen in the course of a couple of hours’ walk along the main
road. From the bush to right or left, one hears the sound of the axe—
not from one spot only, but from several directions at once. A few
steps further on, we can see what is taking place. The brush has been
cut down and piled up in heaps to the height of a yard or more,
between which the trunks of the large trees stand up like the last
pillars of a magnificent ruined building. These, too, present a
melancholy spectacle: the destructive Makonde have ringed them—
cut a broad strip of bark all round to ensure their dying off—and also
piled up pyramids of brush round them. Father and son, mother and
son-in-law, are chopping away perseveringly in the background—too
busy, almost, to look round at the white stranger, who usually excites
so much interest. If you pass by the same place a week later, the piles
of brushwood have disappeared and a thick layer of ashes has taken
the place of the green forest. The large trees stretch their
smouldering trunks and branches in dumb accusation to heaven—if
they have not already fallen and been more or less reduced to ashes,
perhaps only showing as a white stripe on the dark ground.
This work of destruction is carried out by the Makonde alike on the
virgin forest and on the bush which has sprung up on sites already
cultivated and deserted. In the second case they are saved the trouble
of burning the large trees, these being entirely absent in the
secondary bush.
After burning this piece of forest ground and loosening it with the
hoe, the native sows his corn and plants his vegetables. All over the
country, he goes in for bed-culture, which requires, and, in fact,
receives, the most careful attention. Weeds are nowhere tolerated in
the south of German East Africa. The crops may fail on the plains,
where droughts are frequent, but never on the plateau with its
abundant rains and heavy dews. Its fortunate inhabitants even have
the satisfaction of seeing the proud Wayao and Wamakua working
for them as labourers, driven by hunger to serve where they were
accustomed to rule.
But the light, sandy soil is soon exhausted, and would yield no
harvest the second year if cultivated twice running. This fact has
been familiar to the native for ages; consequently he provides in
time, and, while his crop is growing, prepares the next plot with axe
and firebrand. Next year he plants this with his various crops and
lets the first piece lie fallow. For a short time it remains waste and
desolate; then nature steps in to repair the destruction wrought by
man; a thousand new growths spring out of the exhausted soil, and
even the old stumps put forth fresh shoots. Next year the new growth
is up to one’s knees, and in a few years more it is that terrible,
impenetrable bush, which maintains its position till the black
occupier of the land has made the round of all the available sites and
come back to his starting point.
The Makonde are, body and soul, so to speak, one with this bush.
According to my Yao informants, indeed, their name means nothing
else but “bush people.” Their own tradition says that they have been
settled up here for a very long time, but to my surprise they laid great
stress on an original immigration. Their old homes were in the
south-east, near Mikindani and the mouth of the Rovuma, whence
their peaceful forefathers were driven by the continual raids of the
Sakalavas from Madagascar and the warlike Shirazis[47] of the coast,
to take refuge on the almost inaccessible plateau. I have studied
African ethnology for twenty years, but the fact that changes of
population in this apparently quiet and peaceable corner of the earth
could have been occasioned by outside enterprises taking place on
the high seas, was completely new to me. It is, no doubt, however,
correct.
The charming tribal legend of the Makonde—besides informing us
of other interesting matters—explains why they have to live in the
thickest of the bush and a long way from the edge of the plateau,
instead of making their permanent homes beside the purling brooks
and springs of the low country.
“The place where the tribe originated is Mahuta, on the southern
side of the plateau towards the Rovuma, where of old time there was
nothing but thick bush. Out of this bush came a man who never
washed himself or shaved his head, and who ate and drank but little.
He went out and made a human figure from the wood of a tree
growing in the open country, which he took home to his abode in the
bush and there set it upright. In the night this image came to life and
was a woman. The man and woman went down together to the
Rovuma to wash themselves. Here the woman gave birth to a still-
born child. They left that place and passed over the high land into the
valley of the Mbemkuru, where the woman had another child, which
was also born dead. Then they returned to the high bush country of
Mahuta, where the third child was born, which lived and grew up. In
course of time, the couple had many more children, and called
themselves Wamatanda. These were the ancestral stock of the
Makonde, also called Wamakonde,[48] i.e., aborigines. Their
forefather, the man from the bush, gave his children the command to
bury their dead upright, in memory of the mother of their race who
was cut out of wood and awoke to life when standing upright. He also
warned them against settling in the valleys and near large streams,
for sickness and death dwelt there. They were to make it a rule to
have their huts at least an hour’s walk from the nearest watering-
place; then their children would thrive and escape illness.”
The explanation of the name Makonde given by my informants is
somewhat different from that contained in the above legend, which I
extract from a little book (small, but packed with information), by
Pater Adams, entitled Lindi und sein Hinterland. Otherwise, my
results agree exactly with the statements of the legend. Washing?
Hapana—there is no such thing. Why should they do so? As it is, the
supply of water scarcely suffices for cooking and drinking; other
people do not wash, so why should the Makonde distinguish himself
by such needless eccentricity? As for shaving the head, the short,
woolly crop scarcely needs it,[49] so the second ancestral precept is
likewise easy enough to follow. Beyond this, however, there is
nothing ridiculous in the ancestor’s advice. I have obtained from
various local artists a fairly large number of figures carved in wood,
ranging from fifteen to twenty-three inches in height, and
representing women belonging to the great group of the Mavia,
Makonde, and Matambwe tribes. The carving is remarkably well
done and renders the female type with great accuracy, especially the
keloid ornamentation, to be described later on. As to the object and
meaning of their works the sculptors either could or (more probably)
would tell me nothing, and I was forced to content myself with the
scanty information vouchsafed by one man, who said that the figures
were merely intended to represent the nembo—the artificial
deformations of pelele, ear-discs, and keloids. The legend recorded
by Pater Adams places these figures in a new light. They must surely
be more than mere dolls; and we may even venture to assume that
they are—though the majority of present-day Makonde are probably
unaware of the fact—representations of the tribal ancestress.
The references in the legend to the descent from Mahuta to the
Rovuma, and to a journey across the highlands into the Mbekuru
valley, undoubtedly indicate the previous history of the tribe, the
travels of the ancestral pair typifying the migrations of their
descendants. The descent to the neighbouring Rovuma valley, with
its extraordinary fertility and great abundance of game, is intelligible
at a glance—but the crossing of the Lukuledi depression, the ascent
to the Rondo Plateau and the descent to the Mbemkuru, also lie
within the bounds of probability, for all these districts have exactly
the same character as the extreme south. Now, however, comes a
point of especial interest for our bacteriological age. The primitive
Makonde did not enjoy their lives in the marshy river-valleys.
Disease raged among them, and many died. It was only after they
had returned to their original home near Mahuta, that the health
conditions of these people improved. We are very apt to think of the
African as a stupid person whose ignorance of nature is only equalled
by his fear of it, and who looks on all mishaps as caused by evil
spirits and malignant natural powers. It is much more correct to
assume in this case that the people very early learnt to distinguish
districts infested with malaria from those where it is absent.
This knowledge is crystallized in the
ancestral warning against settling in the
valleys and near the great waters, the
dwelling-places of disease and death. At the
same time, for security against the hostile
Mavia south of the Rovuma, it was enacted
that every settlement must be not less than a
certain distance from the southern edge of the
plateau. Such in fact is their mode of life at the
present day. It is not such a bad one, and
certainly they are both safer and more
comfortable than the Makua, the recent
intruders from the south, who have made USUAL METHOD OF
good their footing on the western edge of the CLOSING HUT-DOOR
plateau, extending over a fairly wide belt of
country. Neither Makua nor Makonde show in their dwellings
anything of the size and comeliness of the Yao houses in the plain,
especially at Masasi, Chingulungulu and Zuza’s. Jumbe Chauro, a
Makonde hamlet not far from Newala, on the road to Mahuta, is the
most important settlement of the tribe I have yet seen, and has fairly
spacious huts. But how slovenly is their construction compared with
the palatial residences of the elephant-hunters living in the plain.
The roofs are still more untidy than in the general run of huts during
the dry season, the walls show here and there the scanty beginnings
or the lamentable remains of the mud plastering, and the interior is a
veritable dog-kennel; dirt, dust and disorder everywhere. A few huts
only show any attempt at division into rooms, and this consists
merely of very roughly-made bamboo partitions. In one point alone
have I noticed any indication of progress—in the method of fastening
the door. Houses all over the south are secured in a simple but
ingenious manner. The door consists of a set of stout pieces of wood
or bamboo, tied with bark-string to two cross-pieces, and moving in
two grooves round one of the door-posts, so as to open inwards. If
the owner wishes to leave home, he takes two logs as thick as a man’s
upper arm and about a yard long. One of these is placed obliquely
against the middle of the door from the inside, so as to form an angle
of from 60° to 75° with the ground. He then places the second piece
horizontally across the first, pressing it downward with all his might.
It is kept in place by two strong posts planted in the ground a few
inches inside the door. This fastening is absolutely safe, but of course
cannot be applied to both doors at once, otherwise how could the
owner leave or enter his house? I have not yet succeeded in finding
out how the back door is fastened.
MAKONDE LOCK AND KEY AT JUMBE CHAURO

This is the general way of closing a house. The Makonde at Jumbe
Chauro, however, have a much more complicated, solid and original
one. Here, too, the door is as already described, except that there is
only one post on the inside, standing by itself about six inches from
one side of the doorway. Opposite this post is a hole in the wall just
large enough to admit a man’s arm. The door is closed inside by a
large wooden bolt passing through a hole in this post and pressing
with its free end against the door. The other end has three holes into
which fit three pegs running in vertical grooves inside the post. The
door is opened with a wooden key about a foot long, somewhat
curved and sloped off at the butt; the other end has three pegs
corresponding to the holes, in the bolt, so that, when it is thrust
through the hole in the wall and inserted into the rectangular
opening in the post, the pegs can be lifted and the bolt drawn out.[50]
MODE OF INSERTING THE KEY
With no small pride first one householder and then a second

showed me on the spot the action of this greatest invention of the
Makonde Highlands. To both with an admiring exclamation of
“Vizuri sana!” (“Very fine!”). I expressed the wish to take back these
marvels with me to Ulaya, to show the Wazungu what clever fellows
the Makonde are. Scarcely five minutes after my return to camp at
Newala, the two men came up sweating under the weight of two
heavy logs which they laid down at my feet, handing over at the same
time the keys of the fallen fortress. Arguing, logically enough, that if
the key was wanted, the lock would be wanted with it, they had taken
their axes and chopped down the posts—as it never occurred to them
to dig them out of the ground and so bring them intact. Thus I have
two badly damaged specimens, and the owners, instead of praise,
come in for a blowing-up.
The Makua huts in the environs of Newala are especially
miserable; their more than slovenly construction reminds one of the
temporary erections of the Makua at Hatia’s, though the people here
have not been concerned in a war. It must therefore be due to
congenital idleness, or else to the absence of a powerful chief. Even
the baraza at Mlipa’s, a short hour’s walk south-east of Newala,
shares in this general neglect. While public buildings in this country
are usually looked after more or less carefully, this is in evident
danger of being blown over by the first strong easterly gale. The only
attractive object in this whole district is the grave of the late chief
Mlipa. I visited it in the morning, while the sun was still trying with
partial success to break through the rolling mists, and the circular
grove of tall euphorbias, which, with a broken pot, is all that marks
the old king’s resting-place, impressed one with a touch of pathos.
Even my very materially-minded carriers seemed to feel something
of the sort, for instead of their usual ribald songs, they chanted
solemnly, as we marched on through the dense green of the Makonde
bush:—
“We shall arrive with the great master; we stand in a row and have
no fear about getting our food and our money from the Serkali (the
Government). We are not afraid; we are going along with the great
master, the lion; we are going down to the coast and back.”
With regard to the characteristic features of the various tribes here
on the western edge of the plateau, I can arrive at no other
conclusion than the one already come to in the plain, viz., that it is
impossible for anyone but a trained anthropologist to assign any
given individual at once to his proper tribe. In fact, I think that even
an anthropological specialist, after the most careful examination,
might find it a difficult task to decide. The whole congeries of peoples
collected in the region bounded on the west by the great Central
African rift, Tanganyika and Nyasa, and on the east by the Indian
Ocean, are closely related to each other—some of their languages are
only distinguished from one another as dialects of the same speech,
and no doubt all the tribes present the same shape of skull and
structure of skeleton. Thus, surely, there can be no very striking
differences in outward appearance.
Even did such exist, I should have no time
to concern myself with them, for day after day,
I have to see or hear, as the case may be—in
any case to grasp and record—an
extraordinary number of ethnographic
phenomena. I am almost disposed to think it
fortunate that some departments of inquiry, at
least, are barred by external circumstances.
Chief among these is the subject of iron-
working. We are apt to think of Africa as a
country where iron ore is everywhere, so to
speak, to be picked up by the roadside, and
where it would be quite surprising if the
inhabitants had not learnt to smelt the
material ready to their hand. In fact, the
knowledge of this art ranges all over the
continent, from the Kabyles in the north to the
Kafirs in the south. Here between the Rovuma
and the Lukuledi the conditions are not so
favourable. According to the statements of the
Makonde, neither ironstone nor any other
form of iron ore is known to them. They have
not therefore advanced to the art of smelting
the metal, but have hitherto bought all their
THE ANCESTRESS OF
THE MAKONDE
iron implements from neighbouring tribes.
Even in the plain the inhabitants are not much
better off. Only one man now living is said to
understand the art of smelting iron. This old fundi lives close to
Huwe, that isolated, steep-sided block of granite which rises out of
the green solitude between Masasi and Chingulungulu, and whose
jagged and splintered top meets the traveller’s eye everywhere. While
still at Masasi I wished to see this man at work, but was told that,
frightened by the rising, he had retired across the Rovuma, though
he would soon return. All subsequent inquiries as to whether the
fundi had come back met with the genuine African answer, “Bado”
(“Not yet”).
BRAZIER
Some consolation was afforded me by a brassfounder, whom I

came across in the bush near Akundonde’s. This man is the favourite
of women, and therefore no doubt of the gods; he welds the glittering
brass rods purchased at the coast into those massive, heavy rings
which, on the wrists and ankles of the local fair ones, continually give
me fresh food for admiration. Like every decent master-craftsman he
had all his tools with him, consisting of a pair of bellows, three
crucibles and a hammer—nothing more, apparently. He was quite
willing to show his skill, and in a twinkling had fixed his bellows on
the ground. They are simply two goat-skins, taken off whole, the four
legs being closed by knots, while the upper opening, intended to
admit the air, is kept stretched by two pieces of wood. At the lower
end of the skin a smaller opening is left into which a wooden tube is
stuck. The fundi has quickly borrowed a heap of wood-embers from
the nearest hut; he then fixes the free ends of the two tubes into an
earthen pipe, and clamps them to the ground by means of a bent
piece of wood. Now he fills one of his small clay crucibles, the dross
on which shows that they have been long in use, with the yellow
material, places it in the midst of the embers, which, at present are
only faintly glimmering, and begins his work. In quick alternation
the smith’s two hands move up and down with the open ends of the
bellows; as he raises his hand he holds the slit wide open, so as to let
the air enter the skin bag unhindered. In pressing it down he closes
the bag, and the air puffs through the bamboo tube and clay pipe into
the fire, which quickly burns up. The smith, however, does not keep
on with this work, but beckons to another man, who relieves him at
the bellows, while he takes some more tools out of a large skin pouch
carried on his back. I look on in wonder as, with a smooth round
stick about the thickness of a finger, he bores a few vertical holes into
the clean sand of the soil. This should not be difficult, yet the man
seems to be taking great pains over it. Then he fastens down to the
ground, with a couple of wooden clamps, a neat little trough made by
splitting a joint of bamboo in half, so that the ends are closed by the
two knots. At last the yellow metal has attained the right consistency,
and the fundi lifts the crucible from the fire by means of two sticks
split at the end to serve as tongs. A short swift turn to the left—a
tilting of the crucible—and the molten brass, hissing and giving forth
clouds of smoke, flows first into the bamboo mould and then into the
holes in the ground.
The technique of this backwoods craftsman may not be very far
advanced, but it cannot be denied that he knows how to obtain an
adequate result by the simplest means. The ladies of highest rank in
this country—that is to say, those who can afford it, wear two kinds
of these massive brass rings, one cylindrical, the other semicircular
in section. The latter are cast in the most ingenious way in the
bamboo mould, the former in the circular hole in the sand. It is quite
a simple matter for the fundi to fit these bars to the limbs of his fair
customers; with a few light strokes of his hammer he bends the
pliable brass round arm or ankle without further inconvenience to
the wearer.
SHAPING THE POT
SMOOTHING WITH MAIZE-COB
CUTTING THE EDGE

FINISHING THE BOTTOM
LAST SMOOTHING BEFORE

BURNING
FIRING THE BRUSH-PILE

LIGHTING THE FARTHER SIDE OF
THE PILE
TURNING THE RED-HOT VESSEL
NYASA WOMAN MAKING POTS AT MASASI

Pottery is an art which must always and everywhere excite the
interest of the student, just because it is so intimately connected with
the development of human culture, and because its relics are one of
the principal factors in the reconstruction of our own condition in
prehistoric times. I shall always remember with pleasure the two or
three afternoons at Masasi when Salim Matola’s mother, a slightly-
built, graceful, pleasant-looking woman, explained to me with
touching patience, by means of concrete illustrations, the ceramic art
of her people. The only implements for this primitive process were a
lump of clay in her left hand, and in the right a calabash containing
the following valuables: the fragment of a maize-cob stripped of all
its grains, a smooth, oval pebble, about the size of a pigeon’s egg, a
few chips of gourd-shell, a bamboo splinter about the length of one’s
hand, a small shell, and a bunch of some herb resembling spinach.
Nothing more. The woman scraped with the
shell a round, shallow hole in the soft, fine
sand of the soil, and, when an active young
girl had filled the calabash with water for her,
she began to knead the clay. As if by magic it
gradually assumed the shape of a rough but
already well-shaped vessel, which only wanted
a little touching up with the instruments
before mentioned. I looked out with the
MAKUA WOMAN closest attention for any indication of the use
MAKING A POT. of the potter’s wheel, in however rudimentary
SHOWS THE a form, but no—hapana (there is none). The
BEGINNINGS OF THE embryo pot stood firmly in its little
POTTER’S WHEEL
depression, and the woman walked round it in
a stooping posture, whether she was removing
small stones or similar foreign bodies with the maize-cob, smoothing
the inner or outer surface with the splinter of bamboo, or later, after
letting it dry for a day, pricking in the ornamentation with a pointed
bit of gourd-shell, or working out the bottom, or cutting the edge
with a sharp bamboo knife, or giving the last touches to the finished
vessel. This occupation of the women is infinitely toilsome, but it is
without doubt an accurate reproduction of the process in use among
our ancestors of the Neolithic and Bronze ages.
There is no doubt that the invention of pottery, an item in human
progress whose importance cannot be over-estimated, is due to
women. Rough, coarse and unfeeling, the men of the horde range
over the countryside. When the united cunning of the hunters has
succeeded in killing the game; not one of them thinks of carrying
home the spoil. A bright fire, kindled by a vigorous wielding of the
drill, is crackling beside them; the animal has been cleaned and cut
up secundum artem, and, after a slight singeing, will soon disappear
under their sharp teeth; no one all this time giving a single thought
to wife or child.
To what shifts, on the other hand, the primitive wife, and still more
the primitive mother, was put! Not even prehistoric stomachs could
endure an unvarying diet of raw food. Something or other suggested
the beneficial effect of hot water on the majority of approved but
indigestible dishes. Perhaps a neighbour had tried holding the hard
roots or tubers over the fire in a calabash filled with water—or maybe
an ostrich-egg-shell, or a hastily improvised vessel of bark. They
became much softer and more palatable than they had previously
been; but, unfortunately, the vessel could not stand the fire and got
charred on the outside. That can be remedied, thought our
ancestress, and plastered a layer of wet clay round a similar vessel.
This is an improvement; the cooking utensil remains uninjured, but
the heat of the fire has shrunk it, so that it is loose in its shell. The
next step is to detach it, so, with a firm grip and a jerk, shell and
kernel are separated, and pottery is invented. Perhaps, however, the
discovery which led to an intelligent use of the burnt-clay shell, was
made in a slightly different way. Ostrich-eggs and calabashes are not
to be found in every part of the world, but everywhere mankind has
arrived at the art of making baskets out of pliant materials, such as
bark, bast, strips of palm-leaf, supple twigs, etc. Our inventor has no
water-tight vessel provided by nature. “Never mind, let us line the
basket with clay.” This answers the purpose, but alas! the basket gets
burnt over the blazing fire, the woman watches the process of
cooking with increasing uneasiness, fearing a leak, but no leak
appears. The food, done to a turn, is eaten with peculiar relish; and
the cooking-vessel is examined, half in curiosity, half in satisfaction
at the result. The plastic clay is now hard as stone, and at the same
time looks exceedingly well, for the neat plaiting of the burnt basket
is traced all over it in a pretty pattern. Thus, simultaneously with
pottery, its ornamentation was invented.
Primitive woman has another claim to respect. It was the man,
roving abroad, who invented the art of producing fire at will, but the
woman, unable to imitate him in this, has been a Vestal from the
earliest times. Nothing gives so much trouble as the keeping alight of
the smouldering brand, and, above all, when all the men are absent
from the camp. Heavy rain-clouds gather, already the first large
drops are falling, the first gusts of the storm rage over the plain. The
little flame, a greater anxiety to the woman than her own children,
flickers unsteadily in the blast. What is to be done? A sudden thought
occurs to her, and in an instant she has constructed a primitive hut
out of strips of bark, to protect the flame against rain and wind.
This, or something very like it, was the way in which the principle
of the house was discovered; and even the most hardened misogynist
cannot fairly refuse a woman the credit of it. The protection of the
hearth-fire from the weather is the germ from which the human
dwelling was evolved. Men had little, if any share, in this forward
step, and that only at a late stage. Even at the present day, the
plastering of the housewall with clay and the manufacture of pottery
are exclusively the women’s business. These are two very significant
survivals. Our European kitchen-garden, too, is originally a woman’s
invention, and the hoe, the primitive instrument of agriculture, is,
characteristically enough, still used in this department. But the
noblest achievement which we owe to the other sex is unquestionably
the art of cookery. Roasting alone—the oldest process—is one for
which men took the hint (a very obvious one) from nature. It must
have been suggested by the scorched carcase of some animal
overtaken by the destructive forest-fires. But boiling—the process of
improving organic substances by the help of water heated to boiling-
point—is a much later discovery. It is so recent that it has not even
yet penetrated to all parts of the world. The Polynesians understand
how to steam food, that is, to cook it, neatly wrapped in leaves, in a
hole in the earth between hot stones, the air being excluded, and
(sometimes) a few drops of water sprinkled on the stones; but they
do not understand boiling.
To come back from this digression, we find that the slender Nyasa
woman has, after once more carefully examining the finished pot,
put it aside in the shade to dry. On the following day she sends me
word by her son, Salim Matola, who is always on hand, that she is
going to do the burning, and, on coming out of my house, I find her
already hard at work. She has spread on the ground a layer of very
dry sticks, about as thick as one’s thumb, has laid the pot (now of a
yellowish-grey colour) on them, and is piling brushwood round it.
My faithful Pesa mbili, the mnyampara, who has been standing by,
most obligingly, with a lighted stick, now hands it to her. Both of
them, blowing steadily, light the pile on the lee side, and, when the
flame begins to catch, on the weather side also. Soon the whole is in a
blaze, but the dry fuel is quickly consumed and the fire dies down, so
that we see the red-hot vessel rising from the ashes. The woman
turns it continually with a long stick, sometimes one way and
sometimes another, so that it may be evenly heated all over. In
twenty minutes she rolls it out of the ash-heap, takes up the bundle
of spinach, which has been lying for two days in a jar of water, and
sprinkles the red-hot clay with it. The places where the drops fall are
marked by black spots on the uniform reddish-brown surface. With a
sigh of relief, and with visible satisfaction, the woman rises to an
erect position; she is standing just in a line between me and the fire,
from which a cloud of smoke is just rising: I press the ball of my
camera, the shutter clicks—the apotheosis is achieved! Like a
priestess, representative of her inventive sex, the graceful woman
stands: at her feet the hearth-fire she has given us beside her the
invention she has devised for us, in the background the home she has
built for us.
At Newala, also, I have had the manufacture of pottery carried on
in my presence. Technically the process is better than that already
described, for here we find the beginnings of the potter’s wheel,
which does not seem to exist in the plains; at least I have seen
nothing of the sort. The artist, a frightfully stupid Makua woman, did
not make a depression in the ground to receive the pot she was about
to shape, but used instead a large potsherd. Otherwise, she went to
work in much the same way as Salim’s mother, except that she saved
herself the trouble of walking round and round her work by squatting
at her ease and letting the pot and potsherd rotate round her; this is
surely the first step towards a machine. But it does not follow that
the pot was improved by the process. It is true that it was beautifully
rounded and presented a very creditable appearance when finished,
but the numerous large and small vessels which I have seen, and, in
part, collected, in the “less advanced” districts, are no less so. We
moderns imagine that instruments of precision are necessary to
produce excellent results. Go to the prehistoric collections of our
museums and look at the pots, urns and bowls of our ancestors in the
dim ages of the past, and you will at once perceive your error.
MAKING LONGITUDINAL CUT IN
BARK
DRAWING THE BARK OFF THE LOG
REMOVING THE OUTER BARK

BEATING THE BARK
WORKING THE BARK-CLOTH AFTER BEATING, TO MAKE IT

SOFT
MANUFACTURE OF BARK-CLOTH AT NEWALA

To-day, nearly the whole population of German East Africa is
clothed in imported calico. This was not always the case; even now in
some parts of the north dressed skins are still the prevailing wear,
and in the north-western districts—east and north of Lake
Tanganyika—lies a zone where bark-cloth has not yet been
superseded. Probably not many generations have passed since such
bark fabrics and kilts of skins were the only clothing even in the
south. Even to-day, large quantities of this bright-red or drab
material are still to be found; but if we wish to see it, we must look in
the granaries and on the drying stages inside the native huts, where
it serves less ambitious uses as wrappings for those seeds and fruits
which require to be packed with special care. The salt produced at
Masasi, too, is packed for transport to a distance in large sheets of
bark-cloth. Wherever I found it in any degree possible, I studied the
process of making this cloth. The native requisitioned for the
purpose arrived, carrying a log between two and three yards long and
as thick as his thigh, and nothing else except a curiously-shaped
mallet and the usual long, sharp and pointed knife which all men and
boys wear in a belt at their backs without a sheath—horribile dictu!
[51]
Silently he squats down before me, and with two rapid cuts has
drawn a couple of circles round the log some two yards apart, and
slits the bark lengthwise between them with the point of his knife.
With evident care, he then scrapes off the outer rind all round the
log, so that in a quarter of an hour the inner red layer of the bark
shows up brightly-coloured between the two untouched ends. With
some trouble and much caution, he now loosens the bark at one end,
and opens the cylinder. He then stands up, takes hold of the free
edge with both hands, and turning it inside out, slowly but steadily
pulls it off in one piece. Now comes the troublesome work of
scraping all superfluous particles of outer bark from the outside of
the long, narrow piece of material, while the inner side is carefully
scrutinised for defective spots. At last it is ready for beating. Having
signalled to a friend, who immediately places a bowl of water beside
him, the artificer damps his sheet of bark all over, seizes his mallet,
lays one end of the stuff on the smoothest spot of the log, and
hammers away slowly but continuously. “Very simple!” I think to
myself. “Why, I could do that, too!”—but I am forced to change my
opinions a little later on; for the beating is quite an art, if the fabric is
not to be beaten to pieces. To prevent the breaking of the fibres, the
stuff is several times folded across, so as to interpose several
thicknesses between the mallet and the block. At last the required
state is reached, and the fundi seizes the sheet, still folded, by both
ends, and wrings it out, or calls an assistant to take one end while he
holds the other. The cloth produced in this way is not nearly so fine
and uniform in texture as the famous Uganda bark-cloth, but it is
quite soft, and, above all, cheap.
Now, too, I examine the mallet. My craftsman has been using the
simpler but better form of this implement, a conical block of some
hard wood, its base—the striking surface—being scored across and
across with more or less deeply-cut grooves, and the handle stuck
into a hole in the middle. The other and earlier form of mallet is
shaped in the same way, but the head is fastened by an ingenious
network of bark strips into the split bamboo serving as a handle. The
observation so often made, that ancient customs persist longest in
connection with religious ceremonies and in the life of children, here
finds confirmation. As we shall soon see, bark-cloth is still worn
during the unyago,[52] having been prepared with special solemn
ceremonies; and many a mother, if she has no other garment handy,
will still put her little one into a kilt of bark-cloth, which, after all,
looks better, besides being more in keeping with its African
surroundings, than the ridiculous bit of print from Ulaya.
MAKUA WOMEN

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Police Administration: Structures,

Processes, and Behavior 9th Edition,

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Chapter 2 Policing Today 40

Chapter 3 Intelligence, Terrorism, and Homeland

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Homeland Security and President Barack Obama 85

Chapter 4 Politics and Police Administration 112

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PART 2 The Organization and the Leader 142

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McGregor: Theory X–Theory Y 159

Chapter 6 Organizational Design 176

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The Informal Organization 204

Chapter 7 Leadership 212

Chapter 8 Planning and Decision Making 256

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Blending Five Types of Plans 266

Chapter 9 Human Resource Management 290

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The Police Personnel Selection Process 305

PART 3 The Management of Police Organizations 344

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Communication Barriers 348

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Group Interaction 362

Chapter 11 LABOR RELATIONS 376

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Bargaining Not Required Model 382

Chapter 12 Financial Management 402

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Stockton: Bankrupt and Only Responding to Crimes in Progress

Part 4 Organizational Issues 434

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Workaholic Personality 440

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Chapter 14 Legal Aspects of Police Administration 468

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Liability and Emotionally Disturbed Persons 487

Chapter 15 Organizational Change 512

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Models Regarding Change 525

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Chapter 10: Organizational

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Chapter 15: as providing a “base layer” of information about the field

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• Chapter Summary on paper, electronically, or online. It provides state-of-the-art

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Newala, too, suffers from the distance of its water-supply—at least

The water-supply of New Newala is in the bottom of the valley,

NATIVE PATH THROUGH THE MAKONDE BUSH, NEAR

MAKONDE LOCK AND KEY AT JUMBE CHAURO