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Report of Subcommittee on Cooperation

When this committee met on March 16 and 17, first consideration was given to the scope of its work. The intention in its creation was suggested by its name and its apparent relationship to other subcommittees of the Legislative Committee, namely, on Federal legislation, on State laws, and on municipal legislation. The resolutions adopted at the close of the conference on February 15 were reviewed, as well as the general purpose of the Attorney General's Conference to discuss law-enforcement problems of Federal, State, and local officials. Mayor Quigg Newton and Drew J. T. O'Keefe, president and secretary respectively of the conference, were asked to meet with the committee for the purpose of consultation. After full discussion, it was determined that the activities of the committee should be directed as follows:

1. To secure cooperation in implementing and carrying into effect the objects and purposes of the conferences as represented by the several resolutions, with particular reference to legislation after review and action by the other subcommittees.

2. To consider and make recommendations as to means, methods, and procedure in securing cooperation between Federal, State, and local officials in the consideration, approval, and support of such additional legislation, Federal, State, and municipal, as may be suggested from time to time in connection with various phases of the crime situation and law enforcement.

3. To consider ways and means and make recommendations for the securing of better cooperation between Federal, State, county, and municipal law-enforcement officers in their work of enforcement of penal statutes in all branches and levels of government, with particular reference to combatting the operations of organized crime in its various phases.

Most of the associations of governmental officials represented at the conference, together with the United States Department of Justice, through an assistant attorney general and a United States attorney, being members of this committee, the machinery was at once available for securing support for the several bills approved and recommended by the other subcommittees. Members of this committee were helpful in securing witnesses to appear at the congressional committee hearings on these bills after same were drafted by the office of the Attorney General and introduced in Congress. Particular reference is made to the hearings before a Subcommittee of the Committee on Interstate

and Foreign Commerce of the Senate with regard to transmission of gambling information.

The members of this committee on cooperation were unanimous in feeling that much benefit could be derived in ascertaining the opinions and requesting suggestions from law-enforcement officers and agencies throughout the entire country, with particular reference to such legislation as had been approved as to general purpose by the resolutions of the conference and, more specifically, as recommended by the subcommittees. Accordingly, it was determined to send out questionnaires, the first one to be directed to the membership of the International Association of Chiefs of Police, which includes not only police officers of cities, but sheriffs and State police officers as well. This was done, a questionnaire being prepared by Donald S. Leonard, Michigan State Police Commissioner and former president of the International Association of Chiefs of Police. A copy of the questionnaire, a copy of the letter of transmittal to the membership of the association signed by its president, and a digest or analysis of the completed survey questionnaires received are attached hereto.

The results of this questionnaire are valuable in several particulars. First, it shows gratifying support for the program of the conference. Second, it has developed suggestions and ideas for long-range study. Third, it has demonstrated a practical method of learning of the problems in connection with law enforcement and suggested means for their solution. Fourth, it has shown the way towards effecting better cooperation between law-enforcement officials, Federal, State, county, and municipal.

While in recent years there has been a general willingness to work together, with comparatively little conflict in jurisdictional matters, cooperation has been largely on an individual basis, frequently as a matter of courtesy, and the cooperation is not uniform in various States or sections of the country. Experience has shown the value of mutual aid and assistance and has made it clear to all those connected with the administration of justice that in the continuing war against crime better and more practical cooperation would be effective. The general subject of cooperation, aside from the immediate purpose of carrying into effect the legislative program of the first meeting of the conference, is one calling for long-range study. Conclusions can only be reached after securing expressions from many others in addition to peace officers included in the membership of the International Association of Chiefs of Police. The continuation of these studies, securing expression and recommendation from law-enforcement officers, and probably sampling public opinion, should go forward in order to properly carry out the long-range objectives of the conference, and reports should be made to and considered by the Executive and Continuing Committee.

The members of the Subcommittee on Cooperation have considered that this was intended to be a temporary committee created for the sole purpose of carrying out the objectives of the conference as expressed by the resolutions adopted, with particular reference to legislation, and, unless specifically directed so to do, will not undertake further studies, but, as indicated by the recommendations hereinafter set forth, feel that since a permanent organization has been set up additional questionnaires should be prepared and sent to those charged with law enforcement at the State level, and some means be determined upon to secure the reaction of those officials in the lawenforcement branches of Federal Government with reference to various questions of better and more effective cooperation in the solution of law-enforcement problems of Federal, State, and local officials.

It should be made clear that in submitting an analysis of the survey questionnaires based upon answers and statements of the membership of the International Association of Chiefs of Police, this committee does not necessarily endorse the conclusions of the majority, although it is interesting to note that for the most part the survey represents the thinking of a very good cross section of law-enforcement officers in the various States.

Police chiefs answering the questionnaire represent cities large and small. Twenty-eight police chiefs of cities having more than 250,000 population answered the questionnaire out of a total of 238 police chiefs and other municipal police officers. Twelve answers were received from sheriffs and township police officers; 23 from State police, highway patrol, and State bureau of investigation officers; and 19 from other membership of the IACP. ·

It is encouraging to note the general support for an organization in the form and with membership represented by the continuing permanent organization of the Attorney General's Conference on Organized Crime. In answer to the question: "Do you favor establishment of a national bureau, either governmental or nongovernmental, through which States and cities and the Federal Government could exchange information on gambling, racketeering, and other crimes?" 262 answered "yes"; 25 "no"; 5 did not answer.

An even larger majority, 271 to 13, with 8 not answering, favored the establishment of a permanent crime-study group. Among those favoring such a group, the overwhelming majority of 217 indicated approval of a group representing States, cities, and Federal Government, similar to the Attorney General's Conference on Organized Crime "with necessary expenses paid by the Federal Government.” Only 30 expressed approval of a Federal commission and 14 favored a national crime commission, independent of Federal, State, or local governments, and supported by private subscription. There were some other suggestions.

It is interesting to note the following answers:

"Do you favor some means by which such Government agencies as the Federal Bureau of Investigation, Secret Service, Treasury Agents, and Alcoholic Tax Unit Agencies, could give greater investigative aid, especially in other States, to State and local police agencies, without taking over jurisdiction of cases?" Yes 253, no 33, not answering 6. "To assist in the suppression of organized gambling, do you favor Federal legislation to prohibit the use of telephone, telegraph, or radio facilities for the interstate transmission of certain gambling information, such as horse race betting odds and results? (This would not prohibit the dissemination of sports information through the generally accepted press associations and newspapers.)" Yes 273, no 16, not answering 3.

Also, "To assist in the suppression of gambling, do you favor Federal legislation prohibiting the interstate shipment of gambling devices such as slot machines in States where such devices are illegal?" Yes 279, no 12, not answering 1.

"Do you favor amendment of the tax laws to require that the owner as well as the operator of a slot machine be identified when Federal tax stamps are purchased?" Yes 289, no 9, not answering 2.

"Do you favor Federal legislation requiring that social security registrants be fingerprinted and that such prints be made available to law-enforcement inspection?" Yes 261, no 23, not answering 8.

In connection with the proposal for legislation requiring fingerprinting of social security registrants, suggested in one of the resolutions adopted at the Conference on February 15, it was thought advisable to ascertain the position of the Social Security Administration. It was learned that sharp opposition may be expected from this source. A statement setting forth the reasons for such opposition is attached hereto for information.

In addition to the answers to specific questions, the following suggestions were made by those who filled out the questionnaires relating to how, in the opinion of the IACP members, local law enforcement could otherwise be aided by Federal legislation:

1. National fingerprinting law.

2. Central automobile identification bureau on Federal level. 3. Broaden Federal unlawful flight statute.

4. Check and fingerprint all aliens.

5. Legalize wire tapping by police.

Again it is emphasized that none of these suggestions are endorsed by this report and are not embraced in recommendations of the committee. This information is furnished primarily to show the value of a questionnaire in securing a cross section of thinking on the part of local law-enforcement officers.

A tabulation of answers to the question: "What are your major crime problems?" shows the following, in order:

First, burglary and breaking and entering.

Second, larceny, including auto theft and petty thievery.

Third, juvenile delinquency.

Fourth, gambling and associated crimes.

Fifth, robbery.

It is interesting to note that local law-enforcement officers make the following answers to the question, "What do you think are the principal causes of crime?":

First. Neglect of children by parents, broken homes, lack of proper home training, and other similar answers placing the responsibility on parents was given as the main cause of crime on 146 questionnaires.

Second. Inadequate penalties, delays in prosecution and general apathy on the parts of citizens resulting in lack of sufficient police personnel and inadequate enforcement were listed as causes on 70 questionnaires.

Third. Lack of employment and poverty were listed as causes on 68 questionnaires.

Fourth. The use of intoxicating liquor was listed on 40 questionnaires as a cause.

Fifth. Gambling, greed, and the desire for money without effort expended was listed as a cause on 39 questionnaires.

Other miscellaneous causes listed were as follows: Inadequate recreation facilities, lack of education, inadequate control of mentally ill, and poor housing areas.

A number of recommendations were made with reference to State legislation to aid in the suppression of crime, which are shown in the attached statement of analysis of questionnaires.

Additional information that might prove valuable was adduced in answer to the question, "Do you favor in your city or State any outstanding or unusual crime-suppression legislation that you would recommend for adoption by other cities and States?" Supplementing a digest of the answers, it is deemed by the committee of sufficient value to include copies of the various State laws and local ordinances referred to. This information is submitted in the belief that one of the functions of the continuing or permanent organization of the conference might well be the establishment of a clearinghouse for copies of statutes and local ordinances.

Following are the recommendations of the Subcommittee on Cooperation of the Legislative Committee:

(1) That a long-range study be made of ways, means, and specific methods of securing more practical cooperation in the solution of lawenforcement problems of Federal, State, and local officials.

916108-51-10

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