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From the foregoing remarksit will be perceived that a primary and radical objection to the present system of Police, in the estimation of the Commissioners, is its inadequate provision for the preservation of the public peace, the protection of the citizens, and the preven- tion of crime, during the hours of daylight and of the evening, and for the due execution of those ordinances upon which the health, comfort and good order of the community so much depend.
Looking next to the City Watch, and reasoning from the best I ghts of observation and experience, we are compelled to pronounce it inadequate even to the lim- ited service at present expected, and consequently in- capable by any extension of its duties of supplying de- ficiencies in other branches of the Police. Among the serious objections to that institution the following de- serve particular attention :--
1. That the watchmen derive their appointments from the City Commissioners, who have no connexion with the Police proper, and are, consequently, not the best judges of the qualifications of the applicant: All such appointments should proceed from the Mayor, as the head of Police.
2. A second objectinn is, that the watchmen, having no Police duty to perform during the day, are cnabled to engage in other occupations, to which many hours of their time are devoted. The evils resulting from
A glance at this arrangement of our Police, must suggest one radical and fatal objection, namely: that of | this cause are enormous and multiform-sufficient to VOL. XII. 36
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destroy the value of any system, however well organi- zed and appointed in all other respects. When public and private occupation are thus intermingled, the mind and feelings will be enlisted for the one, while the mere physical powers are devoted to the other; and there will be a constant tendency on the part of the officer to do as much as possible for himself and as little as possi- ble for the public. To the composition of a good Police officer, intelligence, sagacity, a habit of close observa- tion and patient investigation upon the subjects entrust- ed to his care, are far more essential than mere personal strength. By the constant exercise of these faculties he becomes master of his business, and qualifies himself for the highest degree of usefulness, so that whatever tends to divert his thoughts into other channels should be carefully avoided.
3. A third objection to our watch system is its total want of judicious organization and necessary subordi- nation and its independence of all effective control .--- Each individual from the time he enters on duty until its close is an independent officer, without any one to instruct, advise or direct him. He is subject to no in- spection except that of the eight Police officers, who cannot visit his beat in general more than once in a night, and even then have no power but to report actual de- linquency. Whether he does his duty faithfully or not is generally a secret within his own bosom. He is con- stantly tempted to neglect, by the hope that it may not be discovered, whilst the inducements to good conduct are lessened materially by the consciousness that it will probably be unkoown to his superiors.
4. As a corrollary to the two last objections it fol- lows, that under existing arrangements the head of Po- lice cannot be furnished with constant and regular in - formation of the state of all parts of the city and of the subjects requiring his notice or the exercise of his au- thority. Without such intelligence regularly and ac- curately communicated, the chief magistrate cannot execute his office with satisfaction to himself or with signal advantage to the community. In proportion as he can bring the combined intelligence, observation and knowledge of all his officers to bear upon the crimiral and disorderly, will liis administration be effective. In proportion as this combined action is wanting, will his efforts be loose, desultory and ineffective.
5. A fifth objection to the present system, arises from the arrangement by which one watchman ouly is assigned to each beat or round ; so that he is called upon to protect that District during the whole night. It being obviously impossible for one individual to remain in the open air, so many hours continuously, at all sea- sons, and in all weathers-watch boxes have been es- tablished into which the watchman is permitted at in- tervals to retire, and where practically he spends at
least half the night, and as much more as his sense of duty will permit. The consequence is, that during half the night the city is, for many important purposes without a guard. It may happen occasionally that the uproar of a riot, or the boisterous mirth of a party of revellers, will penetrate the seclusion of the watch box; but the silent operations of the housebreakers, or the thief produce no such effect. In connexion with this subject may be mentioned the absurd practice of calling the hour, a practice which originated when clocks and watches were rare curiosities, and which has ceased to be useful, except as a timely warning to the mid- night plunderer to conceal himself, or decamp.
6. It is wrong in principle and injurious in practice, that the watchmen should receive fees or costs for the arrest of persons brought before the Mayor. Cases have probably occurred, in which the desire of a fee hasinduced the officer to overstep his duty and oppress the citizen. The very possibility of such a thing sub- jects even the conscientious officer to a constant suspi- cion of his motives, and injuriously depresses both him and his office in public estimation. A compensation should be fixed, adequate to the decent maintenance | each operation.
of a family, and the officer should be taught to depend on that alone.
7. The want of grades among the watchmen is a serious defect, preventing the operation of that most powerful of all stimulants, the hope of promotion.
By a combination of the causes thus briefly referred to with others which need not be enumerated, the morale of the city watch has been seriously affected, and public confidence in its vigour and efficiency justly diminished. Nor can the fact be concealed from any one who carefully examines the subject; that the large body of men included within that class, perform a very small amount of service, compared with what the public good requires and with the annual expenditure devo- ted to the object. In expressing this opinion, the commissioners design to pass no harsh censure upon the watchmen as individuals. They regard them as men; governed by the ordinary motives of human ac- tion, and condemn a system which holds out numerous and strong temptations to the neglect of duty, with scarcely a check upon those who may yield to the temptation.
From the observations which the commissioners have thus briefly made upon the existing police of the city, it will readily be inferred, that the plan they design to propose iu obedience to the resolution of Council, will embrace a radical reorganization of the whole system ; and the adoption of important principles not heretofore recognized.
With this object in view they recommend in the first place, that the natural distinction between the two branches of police duty, which they endeavored to ex- plain when speaking of the High Constables, be closely observed, and that those officers (with such assistance as may be found necessary,) be allowed to pursue as their principal duty, the business of tracing and arrest- ing culprits, and executing the process of the Mayor's office. It is not desirable to take from them the further powers conferred by the ordinance of 1798, but only to regard the duties arising therefrom as of incidental, not primary obligation.
One branch being thus disposed of, it is proposed to vest all the other duties, including the enforcement of municipal regulations and the general preservation of the public peace by day and night, in a well organized Preventive Police, sufficiently numerous for the pur- pose, and so regulated as to give to that number of men the utmost practicable efficiency. The body thus constituted will have under its especial and constant guardianship by day, as well as by night, the lives; property and persons of our citizens ; will be responsi- ble for the preservation of the public peace, the sup- pression of nuisances moral and physical, the arrest and detention of all persons found actually offending, for the due execution of the City Ordinances, and in short, for all that action of wholesome laws upon the offending classes, by which crime may be prevented, and vice, immorality, and disorder, be suppressed and discouraged.
In the organization of such a body, the following should be regarded as cardinal points:
1. That there be a distinct and responsible head, from whom all subordinates shall derive their appoint- ments, and upon whose approbation they shall be de- pendent for their offices.
2. That to this head of the Police, all information obtained by each subordinate and every thing he may observe or see or know, affecting directly or indirectly the public service shall flow as to a common centre. That from that centre all orders and instructions shall emanate. .
3. That there be such a graduation of officers inferior to the chief, as to enable him to act simultaneously upon all parts of the city, and upon every department of the public service, by means of general directions, without the necessity of superintending in person the details of
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4. That each individual of the Police, whether officer lice not on duty in the respective beats. This arrange- or private, shall have his distinct sphere of duty, and a i ment will secure that no part of the city be left unguar- well marked responsibility for the due performance of ded under any circumstances likely to rise. that duty.
5. 'That the exertions of each individual acting with- in his own sphere, be made to co-operate for a common object so that the head of Police may wield at once the combined mental and physical power of the whole body, and cause it habitually and uniformly to bear upon ali offenders.
6. That the Police force be so disposed as to admit of prompt and rapid concentration upon any point or in any emergency requiring more than ordinary exertion, so that every movement may be certain, successful and overpowering.
7. That all practicable means be used to elevate the moral tone of the Police, to inspire a just pride in their own character and that of the service, and to introduce into the ranks respectable, intelligent, and able bodied men, willing to devote their time, talents and strength, to the public service.
Keeping in view these fundamental principles, the commissioners respectfully recommend to Councils to pass "an ordinance for the establishment of an efficient preventive Police in the City of Philadelphia," which or- dinance shall embrace the following leading provisions.
1. That the Mayor of the city shall be the head of the Police and shall make all appointments and remov- als relating thereto.
2. That the city be divided into four principal divi- sions as nearly equal as may be, having due reference to territory and population. That for each of those divisions there shall be a superintendent one of whom shall be styled Captain and the others Lieutenants of the City Police.
3. That each principal division he subdivided, as equally as circumstances will admit, into four sections or subdivisions, for each of which there shall be ap- pointed an Inspector of Police, who shall have the con- trol of all the inferior Police-men within his section, sub- ject to the general direction and supervision of the pro- per superintendent.
4. That each section or subdivision be again divided into a convenient number of beats, and that a number of private Police-men be appointed equal to twice the whole number of beats.
5. That the night watch at all seasons of the year shall commence at twilight in the evening and end with broad day-light in the morning. That during this peri- od at least one watchinan shall be constantly engaged in patrolling each beat, no one being permitted to leave his round, or retire for shelter until regularly relieved. By this arrangement at least one half the watch will be on active duty during every minute of the night and re- gular reliefs at proper intervals will of course supercede the necessity of watch boxes.
5. That a sufficient number of the police force be employed during all hours of the day, in the respective sections, to preserve order, maintain the peace, enforce the city ordinances, and render such assistance as the citizens may require. A much smaller number will be | information, suppose each policeman on retiring from required on active duty during the day than in the night, so that by an equitable division of the hours among the men of each section, all may obtain sufficient time for rest and refreshment.
6. That for each principal division there shall be a suitable watch house under the care of the proper su- perintendent, at which prisoners may be received and detained, and where the police of the division may at proper times, be mustered and inspected.
7. That at a convenient point in each section, there shall be a suitable room or station for the Inspector at which all the Policemen of the section not actually on duty, shall habitually remain throughout the night, and at such hours of the day as the regulations may require.
9. That all superintendents, and inspectors be re- quired to exercise a constant supervision over the con- duct of their respective subordinates, promptly and impartially to report delinquents, and also to report every instance of remarkable good conduct.
10. That every superindendent,inspector, and private policeman be required to devote his whole time, except what may be necessary for rest and refreshment, to the public service, and shall be at the disposal of his proper superior at all hours of the day and night, That they be prohibited from engaging in any private business calculated to interfere with the spirit of this provision. That a compensation be allowed to each proportioned to his rank, and adequate to the decent maintenance of himself and family. That the receipt of fees or costs on arrests, or of gratuities from private individuals be expressly prohibited. That the fees they would other- wise be entitled to receive, constitute a fund, for the benefit of the private policemen, most distinguished for their good conduct and intelligence. This fund to be distributed at proper intervals, and in limited amounts.
11. That the admission of temporary substitutes for absent policemen be expressly prohibited; but that in case of such absence, the proper inspector shall supply the vacancy by a special arrangement of the reliefs.
12. That the Mayor be instructed, so far as may be practicable and consistent with the public good, to sup- ply all vacancies in the offices of inspector and super- intendent by promoting those who have distinguished themselves in an inferior grade.
13. That the twelve officers now called city police be dispensed with.
14. That a clerk of police be appointed by the May- or, at a competent salary, who shall assist in carrying into effect the foregoing provisions, and perform such other duties as the Mayor may direct.
15. Some proper provision should be made for the preparation of a code of rules for the government of the police in the details of their duties, for designating their badges, insignia, &c. and for carrying into effect the foregoing suggestions in reference to watch houses and section stations.
Under the foregoing heads are included those gene. ral ontlines of the preventive police recommended by the commissioners, which require the action of councils, through the formality of an ordinance. A vast amount of detail must necessarily be provided for in the code of regulations, and be subject to alteration and im- provement, as experience may suggest.
It is impossible for the commissioners fully to explain the contemplated action of the system without extend- Jing this report beyond the limits of convenience. One or two partial observations nevertheless may serve to throw light upon the subject. We have set it down as essential, that the head of police be kept accurately in- formed of every thing that occurs in the city having a tendency to injure the public. With a view to such
his tour of duty, be required to report verbally to the proper inspector the occurrences that have taken place, or the observations he has made within his beat, and that the inspector immediately make a minute of such report in a suitable book. Suppose these minutes to be submitted daily to the proper superintendent, and he required from the materials thus supplied, and his own observation to make frequent reports on the state of the district, to the mayor. By noting opposite each item of intelligence the source from which it is derived; the mayor will be enabled to judge of the capacity and vigilance of each officer. Suppose further, that it be required of each superintendent, inspector and police- man to make himself acquainted as far as possible with all places, persons and things within his district, which
8. That all extra service during the night watch shall be performed by the relief, or that portion of the Po-fare the subjects of legal cognizance, or Iskely to be
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come the sources of crime-and that his knowledge be combined in the form of frequent lists or reports from the superintendents to the mayor. Must it not follow from such an arrangement punctually carried into ef- fect, that the head of police will at all times have before him an accurate map of that territory of crime and vice which the law has placed under his jurisdiction?
Again it may be remarked that as each superinten- dent and inspector will have his distinct sphere of duty, with sufficient force at his disposal to maintain the peace and cause the laws to be respected-the prevalence or continued existence of any evil or disorder after it has once been noticed, will be conclusive evidence of his neglect of duty, unless he can assign some extraordina- ry reason for his failure, and demonstrate that his best efforts have proved unavailing. A sense of this distinct responsibility will go far to ensure a high degree of vigilance and activity on the part of each officer.
In further illustration of the modus operandi of the proposed system, the commissioners will state one or two familiar examples-
Suppose there should be reason to expect a serious riot in a particular part of the city, at a certain time of the night. The mayor being informed of this, has only to communicate it to one or more of the superintendents, designating the number of men required, and the hour and place where their services will be necessary. This force, amounting if necessary to balf the police of the city, would at once be detached from the reliefs of the respective sections, without in the slightest degree in- terfering with the regular guarding of each separate districts.
Or suppose the case, which is unfortunately too fa- miliar in many parts of our city, that assemblages of disorderly persons habitually take place in a particular street to the great annoyance and danger of peaceable passengers. if the presence and proper exertions of the Policeman of the beat throughout the evening, fail to suppress the nuisance, the duty will devolve upon the Inspector, and he will be required to apply his whole disposable force (amounting probably to seven or eight in number) hour after hour, and night after night, until the remedy proves effectual.
Again -- Disorders analogous to those referred to have prevailed to a great extent in certain parts of the city, on the Sabbath day, and have been the subject of loud complaint from well disposed citizens. A very simple arrangement , of the Police with reference to this mat- ter, will enable each Superintendent to maintain thepeace of his division, and to concentrate an irresistible force at every point where disorder occurs or is threatened.
The commissioners deem it unnecessary at this time to occupy the attention of Councils with further details. They proceed therefore to remark, that in the sound- ness of the principles which they have endeavored to explain, and in the practical capacity of the system proposed under proper management, to carry those principles into complete operation, they feel a high de- gree of confidence.
Neither the principles nor the practice referred to, have any claim to novelty or originality. They have been tried elsewhere under difficulties far greater than should be anticipated here, and with the most signal success.
In reference to the Police experience of London and its importance as an example to the large and growing cities of the American continent, one of the Commis- sioners took a suitable public occasion about three years ago to make the following remarks:
" The fundamental principles of our present police were borrowed, together with other municipal regula- tions, from those of England, which having their origin in a rude state of society, and intended to operate upon a scattered population, were not adapted to the circum- stances of a crowded metropolis, and have not kept pace with the progress of criminal art or general re- finement. It was the policy of the English Government
to consider even abuses as sanctified by time, and to resist all reform as a hazardous and almost sacrilegious experiment. Hence, from the time of the Stuarts to the present generation, notwithstanding the increase of population, and the revolutions wrought in the habits, manners, and business of men, the London police in its essential features remained the same, and was only al- tered' by a constant increase in the numbers of those connected with its operations. Nothing like recurrence to original principles-nothing like adaptation to a new state of society-nothing like the introduction of order and system, so as to give to a limited force the utmost possible efficiency, was ever listened to. The consti- tuted authorities went on to accumulate error upon er- ror, absurdity up'on absurdity, expense upon expense- blindly multiplying the mere number of agents, and rendering those agents useless and unmanageable in proportion to their number. As a natural consequence, the present ministry, when they came into power, found a state of things deeply embarrassing and seriously alarming; the wretched and loathsome consequences of centuries of mismanagement accumulated upon their hands-vice increasing, crime eniboldened by prescrip- tive impunity, and an instant necessity for a complete and radical reformation."
" To their immortal honor be it spoken, they ventur- ed to institute a thorough reform, to level this Gothic fabric, remove this worthless lumber, and substitute a system of operations adapted to use and proportioned to each other, founded in common sense, and guided by practical experience; a system corresponding in princi- ple with that which we have endeavored to explain, and thus far eminently successful. It was no common task, it involved difficulties of no ordinary character, and called for a rare mixture of judgment and energy. Perhaps the illustrious individual at the head of the ad- ministration was never engaged in a more embarrassing campaign, than that which he undertook against rooted prejudices and venerable absurdity-Perhaps he never grappled with an enemy more formidable for number or discipline than the criminals of London-and cer- tainly he raised in the field of Waterloo no nobler or more enduring monument of his fame, than is implied in the success of these new regulations."
" The simple question then arises for this community to answer-Will they adhere to a system obviously de- fective, which the very country of its origin has been compelled to abandon after a long and disastrous expe- riment? Must they pass through the same painful pro- cess to arrive at conviction-and will they wait until an instant and stern necessity becomes the advocate of re- form? Or, obeying the dictates of common prudence, will they think, and reason, and act upon the subject, while to do so is comparatively easy, before the evil has reached its crisis, or gained the force of inveterate habit? Is it not true that strong checks are necessary to pre- serve the order of a crowded metropolis; that by a spe- cies of moral fermentation, passion is unnaturally excit- ed, and the growth of crime stimulated and quickened; and that while population creeps onward with an arith- metical progress, wickedness and vice start into exis- tence in a geometrical ratio. If so, there must be a point at which the latter will defy all moral or legal restraint, when reformation will come too late, and the community must be abandoned as a prey to passion and dishonesty.
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