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Addressing Crime and Disorder 7th
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 vii
Contents  

Educating the Hearts and Minds of the Guardians 61

Recruiting for Diversity: A Toolkit 62
Early Intervention Systems: Identifying Problem Employees 63
Racial Profiling and Bias-Based Policing 64
Summary 64   •   Key Terms and Concepts 64   •   Items for
Review 65   •   Learn by Doing 65   •   Endnotes 65

Chapter 4 Protecting the Homeland: An International

Problem for Local Police 68
Learning Objectives 68
Test Your Knowledge 68
Introduction 69
The Many Faces of Terrorism 70
Definitions and Types 70
Homegrown Violent Extremists 70
The Lone Wolf and Homegrown Terrorists 71
An International Problem 72
Cyberterrorism—and the Asian Threat 73
Bioterrorism 74
Law Enforcement Strategies 74
Adapting and Evolving 74
Other Approaches in the Law Enforcement Toolkit 76
Legislative Measures 76
Use of Unmanned Aerial Vehicles: How to Balance Security
and Privacy 76
The Role of Local Police 77
Need for Vigilance 77
Having Plans in Place 78
Engaging the Community and Using Social Media 78
The Role of Community Policing 79
Building Trust 79
Developing Programs and Using Social Media 80
Summary 81   •   Key Terms and Concepts 81   •   Items for
Review 81   •   Learn by Doing 81   •   Endnotes 82

Part III Problem-Solving PROCESS, Programs,

and Practices  85
Chapter 5 Problem Solving: A Process Model 87
Learning Objectives 87
Test Your Knowledge 87
Introduction 88
Problem Solving: Rationalization and Application 88
Early Beginnings 88
Basic Principles 89
A Broader Role for the Street Officer 90
SARA: The Problem-Solving Process 91
Scanning: Problem Identification 91
viii  Contents

Aggregating Incidents 92
Analysis: The Heart of Problem Solving 93
Response: Formulating Tailor-Made Strategies 97
Assessment: Did Responses Diminish the Problem? 97
Difficulties with Problem-Solving Efforts 100
Tailoring Strategies to Neighborhoods 101
Which Strategy Where? 101
Differing Types of Neighborhoods 101
In Sum. . . 102
You Be the Problem Solver: The Case of the Late-Night Delivery
Robberies 102
Summary 104   •   Key Terms and Concepts 105   •   Items for
Review 105   •   Learn by Doing 105   •   Endnotes 105

Chapter 6 Crime Prevention: Programs and Practices 107

Learning Objectives 107
Test Your Knowledge 107
Introduction 108
A Brief History 108
Problem-Oriented Policing, Community, and Crime Prevention:
A Symbiotic Relationship 111
Close Companions 111
The Community’s Role in Preventing Crime and Restoring
Anchor Points 112
Crime Prevention Through Environmental Design 114
Designing Out Crime 114
Second-Generation CPTED 115
Situational Crime Prevention 116
Other Crime Prevention Challenges 119
Officers’ Roles 119
Conducting a Publicity Campaign 120
Victim-Oriented Campaigns 120
Offender-Oriented Campaigns 120
Displacement of Crime and Diffusion of Benefit 121
Evaluating Crime Prevention Initiatives 122
Crime Prevention: What Works and What Doesn’t 122
What Prevents or Reduces Crime 123
What Does Not Appear to Be Successful 123
What Holds Promise 124
Summary 124   •   Key Terms and Concepts 124   •   Items for
Review 124   •   Learn by Doing 125   •   Endnotes 125

Chapter 7 Tools for Problem Solving:

Using Information Technology 127
Learning Objectives 127
Test Your Knowledge 127
Introduction 127
First Things First: IT Comes to Policing 128
 Contents  ix

Early Federal Stimulus 128

Chief Executives’ Views 129
IT for Problem-Oriented Policing: A Conceptual Framework 129
Rationale for IT 129
Systems for Acquiring Crime Information 129
Exploiting the Young Officer’s Flair for IT 130
Crime Analysis: Revisiting SARA 130
What It Is, and How It Works 130
What Crime Analysts Do 131
Acquiring the Ability to Analyze Crimes 132
Which IT Tools to Use? Look at Type of Police Function
Involved 133
Crime Mapping 134
A Long-Standing Practice 134
Policing Looks at Crime and Place 134
Real-Time Crime Centers 136
Strategies and Tools for Crime Management 137
CompStat 137
Intelligence-Led Policing 138
Predictive Policing 139
Smart Policing: Combining the Above 140
Applying Social Media: Lessons from Boston’s Marathon
Bombing 142
Civic Apps Used to Fight Crime 142
Dedicated Software for Problem-Solving Tasks 143
Summary 143   •   Key Terms and Concepts 143   •   Items for
Review 144   •   Learn by Doing 144   •   Endnotes 144

Part IV Needed: Organizational Foundation

for Problem Solving 147

Chapter 8 Changing Agency Culture: Toward

Constitutional and Legitimate Policing 149
Learning Objectives 149
Test Your Knowledge 149
Introduction 150
First Things First: What Is a Police Organization’s “Culture”? 151
Revisiting the “New Professional” 152
A New Mindset 152
Again, “Guardians” or “Soldiers”? 153
Two Essentials for This Environment: Constitutional Policing
and Procedural Justice 153
The Constitution as “Boss” 153
Greater Cooperation Through Legitimacy 154
Angst from Hot Spot Policing and Other Strategies 154
Use of Force in the New Culture of Policing 155
Responding to Mass Demonstrations 155
x  Contents

Moving from a “Good” to “Great” Police Organization 156

The “Level 5 Leader” 156
“Moments of Truth” 157
Recruiting Quality Officers for Community Policing 157
The Applicant Pool 157
Attracting Candidates: Strategies 159
Workforce of the Future: From Baby Boomers to Millennials 161
Roles of Key Leaders 162
Beware the “Toxic Leader” 162
Chief Executives 162
Middle Managers 163
First-Line Supervisors 164
Summary 165   •   Key Terms and Concepts 165   •   Items for
Review 165   •   Learn by Doing 166   •   Endnotes 166

Chapter 9 Planning and Implementation:

Keys to Success 168
Learning Objectives 168
Test Your Knowledge 168
Introduction 169
Personal Perspective: Strategically Planning Your Future 170
Strategic Planning: Basic Elements 170
First and Foremost: A Forward-Thinking Perspective for Navigating
The Future 171
The Changing Face of Policing—In a Dire Economy 172
The Planning Document: A Guide for Implementation 173
Key Leaders and Components 173
Leadership and Administration 175
Human Resources 176
Field Operations 177
External Relations 178
Ten Ways to Undermine Community Policing and Problem
Solving 179
Resistance to Change: Using Force Field Analysis 180
You Be the Change Agent: Some Hands-on Activities 181
I. You Lead the Transition to Problem-Oriented Policing 181
II. Opening a POP Project 184
A Tool for Measuring Agency Implementation: CP-SAT 185
Examples of Planning and Implementation 185
Summary 187   •   Key Terms and Concepts 187   •   Items for
Review 187   •   Learn by Doing 187   •   Endnotes 187

Chapter 10 Training for Problem Solving: “Learning

by Doing” 189
Learning Objectives 189
Test Your Knowledge 189
Introduction 190
Training Police for Today’s Society: The Seattle Example 190
 Contents  xi

How to Train for Constitutional Policing

and Procedural Justice 191
Changing the Culture of Training 191
Fair and Impartial Policing Training 191
Training and Mentoring New Officers 191
Four Training Delivery Methods 192
Recruit Academy 193
Field Training Officer and Police Training Officer Programs 194
In-Service Training 194
Roll Call Training 195
Not to Be Discounted: The Value of Higher Education 195
Involving the Community in the Training Process 196
Organizing and Conducting Adult Training
and Education 197
The Two Dimensions of Training 197
Knowles’ Andragogy: Educating Adult Learners 197
Bloom’s Taxonomy 198
Problem-Based Learning, Generally 198
The Learning Organization 198
Technologies for the Task 199
Using “Gamification” 199
Utilizing Avatars 199
An “Educational Revolution”: E-Learning
and Distance Learning 200
Minimal Curricular Content for Problem Solving 201
Resources on the Web 203
Summary 204   •   Key Terms and Concepts 204   •   Items for
Review 205   •   Learn by Doing 205   •   Endnotes 205

Chapter 11 Evaluating and Assessing Outcomes:

Do the Responses “Measure Up”? 207
Learning Objectives 207
Test Your Knowledge 207
Introduction 208
Assessments Vis-a-Vis Impact Evaluations 208
Knowledge and Skills Program Evaluators Should Possess 210
Measures and Tools 211
Quantitative Measures 211
Qualitative Measures 211
Measurement Validity 211
Evaluating Organizations’ and Officers’
Problem-Solving Efforts 212
The Individual Level 213
The Organizational Level 213
The Social Level 214
Not to Be Overlooked: Community Surveys 216
Summary 217   •   Key Terms and Concepts 217   •   Items for
Review 218   •   Learn by Doing 218   •   Endnotes 218
xii  Contents

Part V Addressing Today’s Crime and Disorder  221

Chapter 12 Problem Solving in Practice: “What Works”

with Drugs, Youth Gangs and Violence,
and Neighborhood Disorder 223
Learning Objectives 223
Test Your Knowledge 223
Introduction 223
The (Changing) War on Drugs 224
Marijuana 224
Cocaine 225
Prescription Drug Abuse: When Jails Become Rehab Clinics 226
Methamphetamine 226
Heroin 227
Synthetic “Designer” Drugs 228
What Works: “Pulling Levers,” Legislation, HIDTA 228
High Intensity Drug Trafficking Areas Program 229
Youth and Crime: Gangs, Guns, and Graffiti 230
Juvenile Offending Today 230
Youth Gangs: An Overview 231
What Works with Youth Gangs? 231
Gang Involvement with Human Trafficking 233
Gun Violence, Generally: Problem-Solving Approaches 233
Youth and Guns 233
Graffiti: What Works 234
Cyberbullying 236
What Can Police Do? 236
School Violence 237
What Can Police Do? 237
Neighborhood Disorder 238
Definitions, Problems, and Responses 238
Responding to Problems of Abandoned Buildings 239
Summary 240   •   Key Terms and Concepts 240   •   Items for
Review 241   •   Learn by Doing 241   •   Endnotes 241

Chapter 13 Addressing Offenders and Victims: Mental

Illness, Domestic Violence, Cyber Criminals,
and Human Trafficking 244
Learning Objectives 244
Test Your Knowledge 244
Introduction 245
Coping with the Mentally Ill Population 245
When the Problem Becomes Lethal 245
Front-End, Back-End Issues 246
What Can Police Do? The Success of CIT 246
Domestic Violence 248
Dangers and Approaches 248
The Family Justice Center Concept 250
 Contents  xiii

Cybercrime 251
Not Only in Film: Extent of Victimization 251
Types, Tactics, and Training 251
DHS Involvement 253
Identify Theft: Nature and Victim/Police Responses 253
General Considerations for an Effective Response Strategy 254
Human Trafficking 255
“Modern Day Slavery” for Victims 256
What Works? Collaboration Is Key 256
The T Visa 256
The Office of Victims of Crime 257
Additional Law Enforcement Efforts: The Diagnostic Center 257
Summary 258   •   Key Terms and Concepts 258   •   Items for
Review 258   •   Learn by Doing 258   •   Endnotes 258

Part VI Challenges Ahead 261

Chapter 14 Future Opportunities and Obstacles 263

Learning Objectives 263
Test Your Knowledge 263
Introduction 263
First Things First: Jettison the Jargon 264
Drivers and Factors Influencing the Future of Policing 265
Economic Impacts 265
Demographic Shifts 266
Technology 266
A Glimpse of What’s Here, What’s on the Horizon 267
Looking for Patterns, Making Predictions 267
New Tech Challenges Await 268
Four Considerations When Deploying New Technologies 269
Terrorism and Homeland Security 271
What Role for Local Police in Homeland Security? 271
Using Community Policing with Terrorism 271
Cybercrime and Community Policing 271
Applying Science to Policing 272
Need for Strong Police Leadership 272
Militarization of the Police 273
Transparency and Public Trust 273
Succession Planning 273
Civilianization 274
Keeping the Focus on Community Policing 274
Training 275
Summary 275   •   Key Terms and Concepts 275   •   Items for
Review 276   •   Learn by Doing 276   •   Endnotes 276

Answers 278
Appendix I Award-Winning Problem-Solving Case Studies 279
Appendix II Model Academic Curriculum for Problem-Oriented Policing 283
Credits 286
Index 290
xiv  Contents

New Topics in this Seventh Edition

In addition to updated information, case studies, exercises, and exhibits newly added throughout
the book, following are other substantively new materials added to this edition:
Chapter 1: Contributions of the federal government/COPS Office to community
policing
Chapter 2: A “new professionalism”; “guardians” or “warriors”? addressing fear of
crime; effects of economy; civilian review boards—blessing or curse?
Chapter 3: (Formerly Chapter 10) States crack down on sanctuary cities; lessons from
history and Ferguson; how to achieve harmony, justice, and policy; trans-
parency with Web sites and databases; calls for police body cameras; guard-
ian mindset; early intervention systems for identifying problem employees
Chapter 4: (New Chapter) Faces of terrorism—homegrown, lone wolf, cyberterrorist;
law enforcement strategies; legislative measures; drones; roles of local
police, community policing, social media
Chapter 5: “CHEERS” method for problem analysis; problem solving in New Zealand
Chapter 6: Problem-oriented policing, community, crime prevention as symbiotic rela-
tionship; community role in preventing crime and restoring anchor points
Chapter 7: IT comes to policing; federal stimulus; rationale for IT; exploiting young
officers’ flair for IT; choosing which tools to use; smart policing; using civic
apps and applying social media; dedicated software for problem solving
Chapter 8: Revisiting the “new professional’s” guardian mindset; constitutional polic-
ing and legitimacy; angst caused by hot spot policing; use of force in the
new culture of policing; responding to mass demonstrations
Chapter 9: Strategic planning example—planning one’s future; a forward-thinking per-
spective; examples of planning and implementation
Chapter 10: Police training for today’s society—Seattle’s model; technologies such as
gamification and use of avatars; E-learning and distance education;
resources on the Web
Chapter 11: Knowledge and skills evaluators should possess; quantitative and qualita-
tive measures; validity; the Evidence-Based Policing Matrix; evaluating
agencies’ and officers’ efforts; RAND’s benchmark program; Sweden’s use
of crime prevention committees
Chapter 12: The changing war on drugs (especially with marijuana, prescription drug
abuse, and synthetic drugs); problems and responses with neighborhood
disorder
Chapter 13: Cybercrime—types, police tactics, and federal efforts for addressing;
human trafficking problems and police strategies
Chapter 14: Technology, terrorism, cybercrime of the future, and what community
policing and problem solving can do to address them; applying science to
policing; need for strong police leadership (in several areas).
 Preface

This is a most exciting point in time to be studying (or working in) law enforcement, as evi-
denced by the fact that, since this book’s last (sixth) edition appeared, the new strategies (smart
policing, intelligence-led policing, predictive policing, and so on), technologies, and methods
that have come into being have changed the field to a major degree. Added to the already chal-
lenging philosophy and strategies of community- and problem-oriented policing, these even
newer strategies challenge the intellect and ability of today’s police officers to address crime and
disorder in ways that are more stimulating and exhilarating than ever before.
This book, like its six preceding editions, is what works in policing for combating crime
and disorder in our neighborhoods and communities. It is about the evolution of the latest era in
policing that began in the mid-1970s, one that centers on collaborating with the community and
other agencies and organizations that are responsible for community safety. It examines from
many perspectives a philosophy and style of policing that requires officers to obtain new knowl-
edge and tools for solving problems, and it is grounded in strategic thinking and planning to
enable agencies to keep up with the rapid societal changes in such areas as homeland defense.
This seventh edition is premised on the assumption that the reader is most likely an under-
graduate or graduate student studying criminal justice or policing, or instead a police practitioner
with a fundamental knowledge of police history and operations who is working in policing or a
government agency and is interested in learning about community policing and problem solving.
Citizens who are collaborating with police to resolve neighborhood problems in innovative ways
can also be well served by reading this book.
We also impart some of the major theories, research, practices (with myriad examples),
and processes that are being implemented under community policing and problem solving. Our
ongoing primary emphasis is on the practical aspects of problem-oriented policing—putting the
philosophy into daily practice. We continue to emphasize that problem-oriented policing is an
individualized, long-term process that involves fundamental institutional change, going beyond
such simple tactics as foot and bicycle patrols or neighborhood police stations; it redefines the
role of the officer on the street from crime fighter to problem solver; it forces a cultural transfor-
mation of the entire police agency, involving changes in recruiting, training, awards systems,
evaluations, and promotions.
It has been said that problem solving is not new in policing, that police officers have always
tried to solve problems in their daily work. True enough; but as is demonstrated throughout this
text, problem solving is not the same as solving problems. Problem solving in the context of
community policing is very different and considerably more complex, requiring that police offi-
cers identify and examine the underlying causes of recurring incidents of crime and disorder.
This policing approach thus seeks to make “street criminologists” of the officers, teaching them
to expand their focus on offenders to include crime settings and victims.
We also emphasize that this book is not a call to ignore or discard policing’s past methods,
nor do we espouse an altogether new philosophy of policing in its place. Instead, we recommend
that the police borrow from the wisdom of the past and adopt a holistic approach to the way
police organizations are learning to address public safety more successfully. This book describes
how many agencies should, and are, actively going about the process of revolutionizing their
philosophy and operations.

Organization and Contents of the Book

As indicated above, like its six predecessors, this book is distinguished by its applied approach.
In doing so, it showcases dozens of exhibits and additional case studies and examples of problem
solving in the field.
Also newly emphasized in this seventh edition are methods of policing a diverse society—
particularly disenfranchised minorities in the “post-Ferguson” era and the call for a re-
examination of police methods—as well as the fight against terrorism and applications of new
information technologies (IT) for problem solving. In addition, chapters will examine major
issues and challenging crime problems (e.g., drugs, gangs, youth and crime, neighborhood
xv
xvi  Preface

disorder, domestic violence, and human trafficking), crime prevention, changing agency culture,
evaluating problem-solving initiatives, cyberbullying and cybercrime, and special populations
(e.g., the mentally ill), and the future. A chapter-by-chapter breakdown follows.
Part I of the book describes what we term the “long road” to community policing and
problem solving. Chapter 1, Evolution, begins with a brief discussion of policing’s inception in
Britain’s and the efforts of Sir Robert Peel leading to the Metropolitan Police Act in England.
We also review the onset and evolution of policing in the United States, including a look at
policing’s three eras (focusing on the emergence of community problem-solving and new strate-
gies for this century and the significant assistance of federal resources); also briefly discussed is
the development of the community- and problem–oriented policing for today’s challenges and
the contributions of problem-oriented policing to homeland security. In Chapter 2, community
partnerships are examined in this time of tremendous police–citizen discord, opens with an
examination of what is meant by “community,” and (as noted above) why all such efforts to
involve citizens in addressing crime and disorder have led to community policing. Included is a
review of the need for a new professionalism, the police role as “guardians,” signs of a healthy
community, economic challenges facing police and society, the use of civilian review boards,
and how communities can connect with their courts and corrections organizations.
Part II includes two chapters that focus on two police priorities: managing diversity and
ensuring that our homeland is protected. Chapter 3, looking at diversity, thus examines the chal-
lenges posed by people immigrating to the United States, the history (often very combative) of
relations between minorities, how problem-oriented policing can enhance police–community
relations, and the need for police to become more transparent and address racial profiling
and bias-based policing. Chapter 4, Protecting the Homeland, examines the many faces of terror-
ism (to include cyberterrorism and bioterrorism) and what the local police and community
policing—with the assistance of legislation and technologies—are doing to combat it.
Part III centers on problem solving and its approaches, programs, and practices. Chapter 5,
Problem Solving, serves as a bulwark of the textbook as it specifically focuses on the develop-
ment and methods of community- and problem-oriented policing, which are complementary
core components. The problem-solving process, known as SARA (for scanning, analysis,
response, and assessment), is discussed as the primary tool for understanding crime and disorder.
Included are the basic principles of police problem solving, the role of the street officer within
it, some difficulties with problem solving, and some ways to tailor strategies to individual neigh-
borhoods. Crime prevention, discussed in Chapter 6, considers two important and contemporary
components for preventing crime: crime prevention through environmental design (CPTED) and
situational crime prevention; included are discussions of which crime-prevention approaches
work, do not appear to be successful, and hold promise for crime prevention. Chapter 7, Tools
for Problem Solving, looks at how IT came to policing as well as the tools that are available for
crime analysis and other functions. Included are several relatively new tools for analyzing and
managing crime: CompStat, intelligence-led and predictive policing, social media, real-time
crime centers, and smart policing.
In Part IV, we examine the necessary organizational foundations required for community
policing and problem solving to flourish. In Chapter 8, Changing Agency Culture, we discuss
what is meant by organizational culture and the need for some police agencies to modify their
culture so as to become more constitutional and legitimate in the eyes of the public; how an orga-
nization can move from one that is “good” to being “great”; recruiting quality officers; and the
roles and responsibilities of chief executives, middle managers, supervisors, and rank-and-file
officers. Chapter 9, Planning and Implementation, discusses the key functions of preparing and
initiating problem-oriented policing, which must be accomplished by thoughtfully laying the
proper foundation; we also explain the strategic planning process, roles of key leaders in this
process, addressing resistance to change, and how to measure whether or not planning and
implementation were properly accomplished. Chapter 10 addresses the challenge of providing
the best means and types of training, particularly in the context of engaging in constitutional, fair
and impartial policing; we also consider the value of higher education, what works best for adult-
and problem-based learning, and some technological approaches to training and the basics of a
curriculum. The last chapter in this part, Chapter 11, confronts the issue of evaluation, including
the different tools and methods for doing so. An ongoing challenge for community policing and
problem solving is determining whether or not police responses to crime were successful.
 Preface  xvii

Part V focuses on specific methods and challenges for dealing with crime and disorder in
our society. In Chapter 12, we describe the application of problem-solving methods to drug
abuse, youth gangs, and neighborhood violence. Chapter 13 continues this same theme, examin-
ing what works with the mentally ill population, domestic violence, cybercrime (including iden-
tity theft), and human trafficking.
Finally, in Part VI, we look at challenges that will likely confront the police in the future.
Chapter 14 explores what kinds of factors will shape and drive change, to include the language
of policing, the economy and demographics, technologies, terrorism, cybercrime, applying sci-
ence to policing, and the need for strong leadership in several areas (e.g., militarization, transpar-
ency, succession planning, civilianization, and training).
Two appendices conclude the text; the first includes several award-winning case studies of
excellent problem solving, and an example of a problem-oriented policing training curriculum.
We believe this book comprehensively lays out for today’s student how problem-oriented
policing should be, and is being applied in the United States. As noted above, the major strength
of this book lies in its many case studies, exhibits, and “learn by doing” segments, which demon-
strate how the concept is planned, implemented, operationalized, and evaluated. As Samuel
Johnson wrote, “Example is always more efficacious than precept.”
We are extremely grateful for the helpful suggestions made by the following reviewers of
this edition: Jay Berman, New Jersey City University; Douglas Davis, Mary Baldwin College;
Jennifer Estis-Sumerel, Itawamba Community College; and Michael Pittaro, American Military
University.

INSTRUCTOR SUPPLEMENTS
Instructor’s Manual with Test Bank. Includes content outlines for classroom discussion,
teaching suggestions, and answers to selected end-of-chapter questions from the text. This also
contains a Word document version of the test bank.
TestGen. This computerized test generation system gives you maximum flexibility in creating
and administering tests on paper, electronically, or online. It provides state-of-the-art features for
viewing and editing test bank questions, dragging a selected question into a test you are creating,
and printing sleek, formatted tests in a variety of layouts. Select test items from test banks
included with TestGen for quick test creation, or write your own questions from scratch.
TestGen’s random generator provides the option to display different text or calculated number
values each time questions are used.
PowerPoint Presentations. Our presentations are clear and straightforward. Photos, illustra-
tions, charts, and tables from the book are included in the presentations when applicable.
To access supplementary materials online, instructors need to request an instructor access code.
Go to www.pearsonhighered.com/irc, where you can register for an instructor access code.
Within 48 hours after registering, you will receive a confirming email, including an instructor
access code. Once you have received your code, go to the site and log on for full instructions on
downloading the materials you wish to use.

ALTERNATE VERSIONS
eBooks This text is also available in multiple eBook formats. These are an exciting new choice
for students looking to save money. As an alternative to purchasing the printed textbook, stu-
dents can purchase an electronic version of the same content. With an eTextbook, students can
search the text, make notes online, print out reading assignments that incorporate lecture notes,
and bookmark important passages for later review. For more information, visit your favorite
online eBook reseller or visit www.mypearsonstore.com.
Ken Peak
Ron Glensor
 About the Authors

Kenneth J. Peak, Ph.D., is a professor emeritus and former chairman of the criminal justice
department at the University of Nevada, Reno, where he was named “Teacher of the Year” by
the UNR Honor Society and also served as acting director of public safety. He has authored or
coauthored 31 books on policing, justice administration, women in law enforcement, and police
supervision and management; two historical books (on bootlegging and temperance); and more
than 60 journal articles and additional book chapters on a wide range of justice-related subjects.
He has served as chairman of the Police Section, Academy of Criminal Justice Sciences and a
past president of the Western Association of Criminal Justice. Prior to coming to UNR, Dr. Peak
held positions as a municipal police officer, criminal justice planner; director of a Four-State
Technical Assistance Institute; director of university police at Pittsburg State University; and
assistant professor at Wichita State University. He received two gubernatorial appointments to
statewide criminal justice committees while in Kansas and holds a doctorate from the University
of Kansas.
Ronald W. Glensor, Ph.D., is an assistant chief (retired) of the Reno, Nevada, Police
Department (RPD). He has accumulated more than 36 years of police experience and com-
manded the department’s patrol, administration, and detective divisions. In addition to being
actively involved in RPD’s implementation of community-oriented policing and problem
solving since 1987, he has provided such training to thousands of officers, elected officials,
and community members representing jurisdictions throughout the United States as well as
Canada, Australia, and the United Kingdom. He is also a judge for the Herman Goldstein
International Problem Oriented Policing Awards held annually throughout the nation.
Dr. Glensor was the 1997 recipient of the prestigious Gary P. Hayes Award, conferred by
the Police Executive Research Forum, recognizing his contributions and leadership in the
policing field. Internationally, he is a frequent featured speaker on a variety of policing
issues. He served a six-month fellowship as problem-oriented policing coordinator with the
Police Executive Research Forum in Washington, D.C., and received an Atlantic Fellowship
in public policy, studying repeat victimization at the Home Office in London. He is coauthor
of Police Supervision and Management in an Era of Community Policing (third edition) and
was coeditor of Policing Communities: Understanding Crime and Solving Problems.
Dr. Glensor has also published in several journals and trade magazines, is an adjunct profes-
sor at the University of Nevada, Reno, and instructs at area police academies and criminal
justice programs. He holds a doctorate in political science and a master’s of public adminis-
tration from the University of Nevada, Reno.

xviii
 Pa r t I
▪ ▪ ▪ ▪ ▪ ▪

The Long Road to Community

Policing and Problem Solving
This part consists of two chapters, which together will map the movement away from
traditional policing methods, the development of community policing and problem
solving, and the important role of the community in those processes. Chapter 1 traces
the professionalizing of policing in England and its subsequent journey to, and
elaboration in, the United States, including its various iterations and strategies;
Chapter 2 focuses on the community’s role in shaping, guiding, and controlling the
police as well as the courts, and corrections subsystems.

1
This page intentionally left blank
▪ ▪ ▪ ▪ ▪ ▪
1
Evolution:
The Geneses of Community Policing

Learning Objectives
As a result of reading this chapter, the student will understand:
■■ The evolution and development of professional policing from its early use of volunteers in
England to its modern-day practices in the United States
■■ The characteristics of each of the three eras—political, professional, and community—of

policing in the United States

■■ The foundations and strategies of both community policing and problem-oriented policing,

to include contributions of the federal government

■■ How empirical studies resulted in major changes in police methods and approaches
■■ How to distinguish the three generations of community policing and problem solving
■■ The contributions of community policing and problem solving to homeland security

■■ How, when viewing the entire history of policing, it may be said to have come full circle in

its contemporary emphasis on community

Test Your Knowledge

1. The “architect” and “crib” of professional policing—the person and agency where most
initial practices were developed—was Robert Deal, in the Philadelphia Police Department.
2. Modern-day policing in the United States originated with the onset of volunteer night patrols
in New York City in 1866.
3. Policing in the United States has gone through three eras: the political, the professional
(or reform), and the community eras.
4. The professional “crime fighter” model of policing has served it well and continues to
prevail today.
5. The community era of policing emphasizes that the police cannot solve crimes without
citizen input and assistance.
6. Community-oriented policing and problem solving relies heavily on the use of statistics:
calls for service, response times, and numbers of arrests by officers.
7. The federal government has had no influence or provided any assistance with the spread of
community policing and problem solving.
Answers can be found on page 278.

3
4 Part I • The Long Road to Community Policing and Problem Solving

When we pull back the layers of government services,

the most fundamental and indispensable virtues
are public safety and social order.
—Hon. David A. Hardy, Washoe County
District Court, Reno, Nevada

To understand what is, we must know what has been, and

what it tends to become.
—Oliver Wendell Holmes

Introduction
It is difficult to accurately establish the beginning of community-oriented policing in America.
This is possibly because the notion of community policing is not altogether new; parts of it are as
old as policing itself, emanating (as will be seen later) from concerns about policing that were
indicated in the early nineteenth century.
We also must mention at the outset of this book that community policing and problem
solving is not a unitary concept but rather a collection of related ideas. Several prominent indi-
viduals, movements, studies, and experiments have brought policing to where it is today. In this
chapter, we examine the principal activities involving the police for more than a century and a
half—activities that led to the development of community policing and problem solving.
This historical examination of policing begins with a brief discussion of Britain’s and Sir
Robert Peel’s influence and the Metropolitan Police Act in England. Then we review the evolu-
tion of policing in America, including the emergence of the political era and attempts at reform
through the professional crime fighter model. Next we look at police and change, including how
“sacred cow” policing methods have been debunked by research, demonstrated the actual nature
of police work, and shown the need for a new approach.
Following is an examination of the community problem-solving era, including what the
principles of this new model are, why it emerged, and how it evolved. Included in this chapter
are brief discussions of some relatively new police analytical tools—CompStat, smart policing,
intelligence-led policing, and predictive policing (all of which are discussed in more detail in
Chapter 7). Next is a brief discussion of how problem-oriented policing can enhance the nation’s
defense and homeland security (Chapter 4 is devoted entirely to this subject as well). Then, the
chapter concludes with a summary, a listing of the chapter’s key terms and concepts, review
questions, and several scenarios and activities that provide opportunities for you to “learn by
doing” (these are explained in more detail below).

British Contributions
The population of England doubled between 1700 and 1800. Parliament, however, took no mea-
sures to help solve the problems that arose from the accompanying social change.1
London, awash in crime, had whole districts become criminal haunts, and thieves became
very bold. In the face of this situation, Henry Fielding began to experiment with possible solu-
tions. Fielding, appointed in 1748 as London’s chief magistrate of Bow Street, argued against the
severity of the English penal code, which applied the death penalty to a large number of offenses.
He felt the country should reform the criminal code in order to deal more with the origins of
crime. In 1750, Fielding made the pursuit of criminals more systematic by creating a small group
of “thief-takers.”2 When Fielding died in 1754, his half-brother John Fielding succeeded him as
Bow Street magistrate. By 1785, his thief-takers had evolved into the Bow Street Runners—
some of the most famous policemen in English history.
Later, Robert Peel, a wealthy member of Parliament, felt strongly that London’s popula-
tion and crime problem merited a full-time professional police force, but many English people
 Chapter 1 • Evolution 5

and other politicians objected to the idea, fearing possible restraint of their liberty. They also
feared a strong police organization because the criminal law was already quite harsh (by the
early nineteenth century, there were 223 crimes in England for which a person could be hanged).
Indeed, Peel’s efforts to gain support for full-time paid police officers failed for seven years.3
Peel finally succeeded in 1829. His bill to Parliament, titled “An Act for Improving the
Police in and Near the Metropolis,” succeeded and became known as the Metropolitan Police
Act of 1829. The General Instructions of the new force stressed its preventive nature, saying that
“the principal object to be attained is ‘the prevention of crime.’ The security of persons and prop-
erty will thus be better effected, than by the detection and punishment of the offender after he has
succeeded in committing the crime.”4 It was decided that constables would don a uniform (blue
coat, blue pants, and black top hat) and would arm themselves with a short baton (known as a
truncheon) and a rattle (for raising an alarm); each constable was to wear his individual number
on his collar where it could be easily seen.5
Peel proved very farsighted and keenly aware of the needs of a community-oriented police force
as well as the need of the public who would be asked to maintain it. Indeed, Peel perceived that the
poor quality of policing was a contributing factor to the social disorder. Peel’s statement that “The
police are the public, and the public are the police” emphasized his belief that the police are first and
foremost members of the larger society.6
Peel’s attempts to appease the public were well grounded; during the first three years of his
reform effort, he encountered strong opposition. Peel was denounced as a potential dictator; the
London Times urged revolt, and Blackwood’s Magazine referred to the bobbies as “general
spies” and “finished tools of corruption.” A national secret body was organized to combat the
police, who were nicknamed the “Blue Devils” and the “Raw Lobsters.” Also during this initial
five-year period, Peel endured one of the largest police turnover rates in history. Estimates range
widely, but it is probably accurate to accept the figure of 1,341 constables resigning from
London’s Metropolitan Police from 1829 to 1834.7
Peel drafted what have become known as Peel’s Principles of policing, most (if not all) of
which are still apropos to today’s police community. They are presented in Box 1–1.

Box 1–1
Peel’s Principles of Policing

1. The basic mission for which the police exist is to prevent 6. The police should use physical force to the extent necessary
crime and disorder as an alternative to the repression of to secure observance of the law or to restore order only
crime and disorder by military force and severity of legal when the exercise of persuasion, advice, and warning is
punishment. found to be insufficient to achieve police objectives; and
2. The ability of the police to perform their duties is depend- police should use only the minimum degree of physical
ent upon public approval of police existence, actions, force which is necessary on any particular occasion for
behavior, and the ability of the police to secure and main- achieving a police objective.
tain public respect. 7. The police at all times should maintain a relationship with
3. The police must secure the willing cooperation of the pub- the public that gives reality to the historic tradition that the
lic in voluntary observance of the law to be able to secure police are the public and that the public are the police;
and maintain public respect. the police are the only members of the public who are paid
4. The degree of cooperation of the public that can be secured to give full-time attention to duties which are incumbent on
diminishes, proportionately, the necessity for the use of every citizen in the interest of the community welfare.
physical force and compulsion in achieving police objectives. 8. The police should always direct their actions toward their
5. The police seek and preserve public favor, not by catering to functions and never appear to usurp the powers of the
public opinion, but by constantly demonstrating absolutely judiciary by avenging individuals or the state, or authorita-
impartial service to the law, in complete independence of tively judging guilt or punishing the guilty.
policy, and without regard to the justice or injustice of the 9. The test of police efficiency is the absence of crime and
substance of individual laws; by ready offering of individual disorder, not the visible evidence of police action in dealing
service and friendship to all members of the society without with them.
regard to their race or social standing; by ready exercise of
courtesy and friendly good humor; and by ready offering of Source: W. L. Melville Lee, A History of Police in England (London:
individual sacrifice in protecting and preserving life. Methuen, 1901), Chapter 12.
6 Part I • The Long Road to Community Policing and Problem Solving

Policing in America: The Political Era

Although the onset of full-time, professional policing in the United States is commonly said to
have occurred in New York City in 1844, some police historians believe that the first organized,
“modern” form of policing occurred in the South in the form of slave patrols.8 Indeed, from the
time Dutch slave ships began bringing slaves to the U.S. colonies as early as 1670, colonists
began attempting to control slaves through informal means. The first such patrol was probably
first organized as a special enforcement arm in South Carolina in 1704.9 These men were well-
armed and often visited plantations where they were allowed to flog slaves who were violating
the codes.10 In many colonies and states, anyone could legally apprehend, chastise, and even kill
any slave found off of his or her plantation, and runaway slaves could even be killed in some
states.11 The slave patrols eventually became the legal mechanism for social control, particularly
in rural areas of the Southern colonies, where they were to maintain the institution of slavery as
well as capture runaway slaves and protect the white majority from slave uprisings and crimes.12

Early Beginnings
The New York Model.   Americans meanwhile were observing Peel’s overall successful
experiment with the bobbies on the patrol beat. Industrialization and social upheaval had not
reached the proportions that they had in England, however, so there was not the urgency for full-
time policing that had been experienced in England. Yet by the 1840s, when industrialization
began in earnest in America, U.S. officials were watching the police reform movement in
England more closely.
To comprehend the blundering, inefficiency, and confusion that surrounded nineteenth-
century police in what would be called the political era of policing, we must remember that this
was an age when the best forensic techniques could not clearly distinguish the blood of a pig from
that of a human and the art of criminal detection was little more than divination. Steamboats blew
up, trains regularly mutilated and killed pedestrians, children got run over by wagons, injury very
often meant death, and doctors resisted the germ theory of disease. In the midst of all this, the police
would be patrolling—the police being men who at best had been trained by reading pathetic little
rule books that provided them little or no guidance in the face of human distress and disorder.13

New York Police Department officers initially refused to wear uniforms because they did not want to
appear as “liveried lackeys.” A blue frock coat with brass buttons was adopted in 1853.
Courtesy NYPD Photo Unit.
Another random document with
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 CHAPTER X.
MAJOR BYNG’S SUGGESTION.

Major Byng, a wiry, dried-up little officer, with remarkably thin legs
and sporting proclivities, was reclining in a long chair, in the
verandah of the Napier Hotel, Poonah, smoking his after-breakfast
“Trichy,” and running his eye over the “Asian” pocket-book.
“Hullo, Byng, old man!” cried a loud cheerful voice, and looking up,
his amaze was depicted in the countenance he turned upon
Clarence Waring.
“Waring! Why—I thought,” putting down his book and sitting erect.
“Thought I had gone home—sold out and was stone broke. But
here I am, you see, on my legs again.”
“Delighted to hear it,” with a swift glance at Waring’s well-to-do air
and expensive-looking clothes. “Sit down, my dear boy,” he cried
cordially, “sit down and have a cheroot, and tell me all about yourself
and what has brought you back again to the land of regrets? Is it tea,
coffee, or gold?”
“Gold, in one sense. I am companion to a young millionaire, or
rather to the nephew of a man who has so much money—and no
children—that he does not know what to do.”
“And who is the young man? Does he know what to do?”
“His name is Jervis—his rich uncle is married to my sister; we are
connections, you see, and when he expressed a desire to explore
the gorgeous East, my sister naturally suggested me for the post of
guide, philosopher, and friend.”
Here Major Byng gave a short sharp laugh, like a bark.
“We landed in Bombay ten days ago, and are going to tour about
and see the world.”
 “What is the programme?”
“My programme is as follows: Poonah races, Secunderabad races,
Madras races, a big game shoot in Travancore, expense no object,
elephants, beaters, club-cook, coolies with letters, and ice for the
champagne. Then I shall run him about in the train a bit, and show
him Delhi, Agra, Jeypore; after that we will put in the end of the cold
weather in Calcutta. I have lots of pals there, and from Calcutta we
will go to the hills, to Shirani. I shall be glad to see the old club again
—many a fleeting hour have I spent there!”
“That same club had a shocking bad name for gambling and bear
fighting,” said Major Byng significantly.
“I believe it had, now you mention it; but you may be sure that it
has reformed—like myself.”
“And this young fellow—what is he like?”
“Quiet, gentlemanly, easy-going, easily pleased, thinks every one
a good sort,” and Waring laughed derisively; “abhors all fuss or
show, never bets, never gets up in the morning with a head, no
expensive tastes.”
“In fact, his tastes are miserably beneath his opportunities! What a
pity it is that the millionaire is not your uncle!”
“Yes, instead of merely brother-in-law, and brothers-in-law are
notoriously unfeeling. However, I have adopted mine as my own
blood relation, for the present. I boss the show. Come and dine with
me to-night, and tell me all the ‘gup,’ and give me the straight tip for
the Arab purse.”
“All right. Is this young Jervis a sportsman?”
“He is a first-class man on a horse, and he plays polo, but he does
not go in for racing—more’s the pity!”
“Plays polo, does he? By Jove!” and an eager light shone in the
major’s little greenish eyes. “I’ve a couple of ponies for sale——”
“He does not want them now, whatever he may do later in Calcutta
or in the hills. I shall be looking out for three or four for myself, good
sound ones, mind you, Byng, up to weight. I’ve put on flesh, you see,
but I dare say my anxious responsibilities will wear me down a bit.
Jervis does not weigh more than ten stone, and, talk of the devil,
here he comes.”
Major Byng turned his head quickly, as at this moment Waring’s
travelling companion, a slight, active-looking young man, entered the
compound, closely pursued by a swarm of hawkers, and their
accompanying train of coolies, bearing on their heads the inevitable
Poonah figures, hand-screens, pottery, beetle-work, silks, silver, and
jewellery.
“I say, Waring,” he called out as he approached, “just look at me!
One would think I was a queen bee. If this goes on, you will have to
consign me to a lunatic asylum, if there is such a place out here.”
“Mark, let me introduce you to my old friend, Major Byng.”
Major Byng bent forward in his chair—to stand up was too great
an exertion even to greet a possible purchaser of polo ponies—
smiled affably, and said—
“You are only just out, I understand. How do you like India?”
“So far, I loathe it,” sitting down as he spoke, removing his topee,
and wiping his forehead. “Ever since I landed, I have lived in a state
of torment.”
“Ah, the mosquitoes!” exclaimed Major Byng, sympathetically; “you
will get used to them. They always make for new arrivals and fresh
blood.”
“No, no; but human mosquitoes! Touts, hawkers, beggars,
jewellers, horse-dealers. They all set upon me from the moment I
arrived. Ever since then, my life is a burthen to me. It was pretty bad
on board ship. Some of our fellow-travellers seemed to think I was a
great celebrity, instead of the common or ordinary passenger; they
loaded me with civil speeches, and the day we got into Bombay I
was nearly buried alive in invitations, people were so sorry to part
with me!”
 “Here is a nice young cynic for you!” exclaimed Captain Waring,
complacently. “He is not yet accustomed to the fierce light that beats
upon a good-looking young bachelor, heir to thirty thousand a year
——”
“Why not make it a hundred thousand at once, while you are about
it?” interrupted the other impatiently. “How could they tell I was heir
to any one? I’m sure I am a most everyday-looking individual. My
uncle’s income is not ticketed on my back!”
“It was in one sense,” exclaimed Waring, with a chuckle.
“It was only with the common, vulgar class that I was so
immensely popular.”
“My dear fellow, you are much too humble minded. You were
popular with every one.”
“No, by no means; I could have hugged the supercilious old dame
who asked me with a drawl if I was in any way related to Pollitt’s
patent fowl food? I was delighted to answer with effusion, ‘Nephew,
ma’am.’ She despised me from the very bottom of her soul, and
made no foolish effort to conceal her feelings.”
“Ah! She had no daughters,” rejoined Waring, with a scornful
laugh. “The valet told all about you. He had nothing on earth to do,
but magnify his master and consequently exalt himself. Your value is
reflected in your gentleman’s gentleman, and he had no mock
modesty, and priced you at a cool million! By the way, I saw him
driving off just now in the best hotel landau, with his feet on the
opposite cushions, and a cigarette in his mouth. He is a magnificent
advertisement.”
They were now the centre of a vast mob of hawkers, who formed a
squatting circle, and the verandah was fully stocked. The jewellers
had already untied their nice little tin boxes from their white calico
wrappers, and their contents were displayed on the usual enticing
squares of red saloo.
“Waring Sahib!” screamed an ancient vendor with but one eye.
“Last time, three four years ago, I see you at Charleville Hotel,
Mussouri, I sell your honour one very nice diamond bangle for one
pretty lady——”
“Well, Crackett, I’m not such a fool now. I want a neat pearl pin for
myself.” He proceeded to deliberately select one from a case, and
then added with a grin, “That time, I paying for lady; this time,
gentleman,” pointing to Jervis, “paying for me.”
“I can’t stand it,” cried Jervis, jumping to his feet. “Here is the man
with the chestnut Arab and the spotted cob with pink legs, that has
been persecuting me for two days; and here comes the boy with the
stuffed peacock who has stalked me all morning; and—I see the girl
in the thunder and lightning waistcoat. I know she is going to ask me
to ride with her,” and he snatched up his topee and fled.
Major Byng noticed Jervis at the table d’hôte that evening. He had
been cleverly “cut off” from Waring, and was the prey of two over-
dressed, noisy young women. Mrs. Pollitt was mistaken, second-rate
people did come to India.
“I’ll tell you what, Waring!” he said to that gentleman, who was in
his most jovial, genial humour, “that young fellow is most shamefully
mobbed. His valet has given him away. If you don’t look out, he will
slip his heel ropes and bolt home. Pray observe his expression! Just
look at those two women, especially at the one who is measuring the
size of her waist with her serviette, for his information. He will go
back by the next steamer; it is written on his forehead!”
“No, he won’t do that,” rejoined Clarence, with lazy confidence.
“He has a most particular reason for staying out here for a while; but
I grant you that he is not enjoying himself, and does not appear to
appreciate seeing the world—and it is not a bad old world if you
know the right way to take it. Now, if I were in his shoes,” glancing
expressively across the table, “I’d fool that young woman to the very
top of her bent!”
In the billiard-room, when Mark joined them, Major Byng said—
“I saw your dismal plight at dinner, and pitied you. If you want to
lead a quiet life, and will take an old soldier’s advice, I would say, get
rid of the valet, send him home with half your luggage. Then start
from a fresh place, where no one knows you, with a good
Mussulman bearer, who is a complete stranger to your affairs. Let
Clarence here be paymaster—he can talk the language, and looks
wealthy and important—he won’t mind bearing the brunt, or being
taken for a rich man if the trouble breaks out again, and you can live
in peace and gang your ain gait.”
The Major’s advice was subsequently acted upon,—with most
excellent results. The cousins meanwhile attended the Poonah
races, where Clarence met some old acquaintances.
One of them privately remarked to Major Byng—
“Waring seems to have nine lives, like a cat, and looks most
festive and prosperous. I saw him doing a capital ready-money
business with the ‘Bookies’ just now—and he is a good customer to
the Para Mutual. It is a little startling to see him in the character of
mentor. I only hope he won’t get into many scrapes!”
“Oh, Telemachus has his head screwed on pretty tight, and he will
look after Waring—the pupil will take care of the teacher. He is a real
good sort, that boy. I wonder if his people know how old Clarence
used to race, and carry on and gamble at the lotteries, and generally
play the devil when he was out here?”
“Not they!” emphatically.
“He owes me one hundred rupees this three years, but he is such
a tremendous Bahadur now, that I am ashamed to remind him of
such a trifling sum. I sincerely hope that he has turned over a new
leaf and is a reformed character. What do you say, Crompton?”
“I say ‘Amen,’ with all my heart,” was the prompt response.
Mark Jervis had gone straight to the agents, Bostock & Bell’s, the
day he had landed in Bombay, and asked for his father’s address.
He only obtained it with difficulty and after considerable delay. The
head of the firm, in a private interview, earnestly entreated him to
keep the secret, otherwise they would get into trouble, as Major
Jervis was a peculiar man and most mysterious about his affairs,
which were now entirely managed by a Mr. Cardozo. Major Jervis
had not corresponded with them personally, for years. He then
scribbled something on a card, which he handed to the new arrival,
who eagerly read, “Mr. Jones, Hawal-Ghât, via Shirani, N.W.P.” The
major’s son despatched a letter with this superscription by the very
next post.
 CHAPTER XI.
A RESERVED LADY.

A hot moonless night towards the end of March, and the up-mail
from Bombay to Calcutta has come to a standstill. The glare from the
furnace and the carriage lamps lights up the ghostly looking
telegraph-posts, the dusty cactus hedge, and illuminates a small
portion of the surrounding jungle. Anxiously gazing eyes see no sign
of a station, or even of a signalman’s hut, within the immediate glare
—and beyond it there looms a rocky, barren tract, chiefly swallowed
up in inscrutable darkness.
There is a babel of men’s voices, shrill and emotional, and not
emanating from European throats, a running of many feet, and
above all is heard the snorting of the engine and the dismal shrieks
of the steam whistle.
“What does it all mean?” inquired a silvery treble, and a fluffy head
leant out of a first-class ladies’ compartment.
“Nothing to be alarmed about,” responded a pleasant tenor voice
from the permanent way. “There has been a collision between two
goods trains about a mile ahead, and the line is blocked.”
“Any one killed?” she drawled.
“Only a couple of niggers,” rejoined the pleasant voice, in a
cheerful key.
“Dear me!” exclaimed the lady with sudden animation; “why,
Captain Waring, surely it cannot be you!”
“Pray why not?” now climbing up on the foot-board. “And do I
behold Mrs. Bellett?” as the head and shoulders of a good-looking
man appeared at the window, and looked into the carriage, which
contained a mountain of luggage, two ladies, a monkey, and a small
green parrot.
 “Where have you dropped from?” she inquired. “I thought you had
left India for ever and ever. What has brought you back?”
“The remembrance of happier days,” he answered, with a
sentimental air, “and a P. and O. steamer.”
“But you have left the service, surely?”
“Yes, three years ago; it was too much of a grind at home.
Formerly I was in India on duty, now I am out here for pleasure. No
bother about over-staying my leave—no fear of brass hats.”
“Meanwhile, is there any fear of our being run into by another
train?” inquired the second lady nervously, a lady who sat at the
opposite side of the compartment with her head muffled up in a pink
shawl.
“Not the smallest; we are perfectly safe.”
“Captain Waring, this is my sister, Mrs. Coote,” explained Mrs.
Bellett. “And now perhaps you can tell us where we are, and what is
to become of us?”
“As to where you are, you are about three miles from Okara
Junction; as to what will happen to you, I am afraid that you will have
to walk there under my escort—if I may be permitted that honour.”
“Walk three miles!” she repeated shrilly. “Why, I have not done
such a thing for years, and I have on thin shoes. Could we not go on
the engine?”
“Yes, if the engine could fly over nearly a hundred luggage
waggons. It is a fine starlight night; we will get a lamp, and can keep
along the line. They have sent for a break-down gang, and we shall
catch another train at Okara. We will only have about an hour or two
to wait.”
“Well, I suppose we must make the best of it!” said Mrs. Coote,
“like others,” as numbers of natives flocked past, chattering volubly,
and carrying their bedding and bundles.
“I wish we could get supper at Okara,” said her sister. “I am sure
we shall want it after our tramp; but I know we need not build on
anything better than a goat chop, and the day before yesterday’s
curry. However, I have a tea-basket.”
“I can go one better,” said Captain Waring. “I have a tiffin-basket,
well supplied with ice, champagne, cold tongue, potted grouse—
cake—fruit——”
“You are making me quite ravenous,” cried Mrs. Bellett. “But how
are you to get all these delicacies to Okara?”
“By a coolie, I hope. If the worst comes to the worst, I will carry
them on my head, sooner than leave them behind. However, rupees
work wonders, and I expect I shall get hold of as many as will carry
the basket, and also your baggage; I suppose fifty will do?” and with
a grin, he climbed down out of sight.
“What a stroke of luck, Nettie!” exclaimed Mrs. Bellett. “He used to
be such a friend of mine at Mussouri, and imagine coming across
him in this way! He seems to be rolling in money; he must have
come in for a fortune, for he used to be frightfully hard up. I’m so
glad to meet him.”
“Yes, it’s all very fine for you, who are dressed,” rejoined the other
in a peevish voice; “but just look at me in an old tea-jacket, with my
hair in curling-pins!”
“Oh, you were all right! I’m certain he never noticed you!” was the
sisterly reply. “Let us be quick and put up our things. I wish to
goodness the ayah was here,” and she began to bustle about, and
strap up wraps and pillows, and collect books and fans.
Every one in the train seemed to be in a state of activity, preparing
for departure, and presently many parties on foot, with lanterns,
might be seen streaming along the line. Captain Waring promptly
returned with a dozen coolies, and soon Mrs. Bellett’s carriage was
empty. She and her sister were assisted by Captain Waring and a
young man—presumably his companion. Ere descending, Mrs.
Bellett, who had a pretty foot, paused on the step to exhibit the
thinness of her shoes, and demanded, as she put out her Louis-
Quatorze sole, “how she was to walk three miles in that, along a
rough road?”
 The two ladies were nevertheless in the highest spirits, and
appeared to enjoy the novelty of the adventure. Ere the quartette
had gone twenty yards, the guard came shouting after them—
“Beg pardon, sir,” to Captain Waring, “but there is a lady quite
alone in my charge. I can’t take her on; I must stay and see to the
baggage, and remain here. And would you look after her?”
“Where is she?” demanded Waring, irritably.
“Last carriage but one—reserved ladies, first-class.”
“I say, Mark,” turning to his friend, “if she is a reserved lady, you
are all right. He is awfully shy, this young fellow,” he explained to his
other companions, with a loud laugh. “I don’t mind betting that she is
old—and you know you are fond of old women—so just run back like
a good chap. You see, I have Mrs. Bellett and her sister—you won’t
be five minutes behind us, bring on the reserved lady as fast as you
can.”
The other made no audible reply, but obediently turned about, and
went slowly past the rows of empty carriages until he came nearly to
the end of the train. Here he discovered a solitary white figure
standing above him in the open door of a compartment, and a girlish
voice called down into the dark—
“Is that you, guard?”
“No,” was the answer; “but the guard has sent me to ask if I can
help you in any way.”
A momentary pause, and then there came a rather doubtful
“Thank you.”
“Your lamp has gone out, I see, but I can easily strike a match and
get your things together. There is a block on the line, and you will
have to get down and walk on to the next station.”
“Really? Has there been an accident? I could not make out what
the people were saying.”
“It is not of much consequence—two goods trains disputing the
right of way; but we shall have to walk to Okara to catch the
Cawnpore mail.”
“Is it far?”
“About three miles, I believe.”
“Oh, that is not much! I have not many things—only a dressing-
bag, a rug, and a parasol.”
“All right; if you will pass them down, I will carry them.”
“But surely there is a porter,” expostulated the lady, “and I need
not trouble you.”
“I don’t suppose there is what you call a porter nearer than
Brindisi, and all the coolies are taking out the luggage. Allow me to
help you.”
In another second the young lady, who was both light and active,
stood beside him on the line. She was English; she was tall; and she
wore a hideously shaped country-made topee—that was all that he
could make out in the dim light.
“Now, shall we start?” he asked briskly, taking her bag, rug, and
parasol.
“Please let me have the bag,” she entreated. “I—I—that is to say, I
would rather keep it myself. All my money is in it.”
“And I may be a highwayman for what you know,” he returned,
with a laugh. “I give you my word of honour that, if you will allow me
to carry it, I will not rob you.”
“I did not mean that,” she stammered.
“Then what did you mean? At any rate I mean to keep it. The other
passengers are on ahead—I suppose you are quite alone?”
“Almost. There is a servant in the train who is supposed to look
after me, but I am looking after him, and seeing that he is not left
behind at the different junctions. We cannot understand one word we
exchange, so he grins and gesticulates, and I nod and point; but it all
comes to nothing, or worse than nothing. I wanted some tea this
morning, and he brought me whisky and soda.”
 “And have you no one to rely on but this intelligent attendant?”
“No. The people I came out with changed at Khandala, and left me
in charge of the guard, and in a through carriage to Allahabad; and of
course we never expected this.”
“So you have just come out from home?” he observed, as they
walked along at a good pace.
“Yes; arrived yesterday morning in the Arcadia.”
“Then this is the first time you have actually set foot on Indian soil,
for trains and gharries do not count?”
“It is. Are there”—looking nervously at the wild expanse on either
hand—“any tigers about, do you think?”
“No, I sincerely hope not, as I have no weapon but your parasol.
Joking apart, you are perfectly safe. This”—with a wave of the
aforesaid parasol—“is not their style of hunting-ground.”
“And what is their style, as you call it?”
“Oh, lots of high grass and jungle, in a cattle country.”
“Have you shot many tigers?”
“Two last month. My friend and I had rather good sport down in
Travancore.”
“I suppose you live out here?”
“No, I have only been about six months in the country.”
“I wish I had been six months in India.”
“May I ask why?”
“Certainly you may. Because I would be going home in six months
more.”
“And you only landed forty-eight hours ago! Surely you are not
tired of it already. I thought all young ladies liked India. Mind where
you are going! It is very dark here. Will you take hold of my arm?”
“No, thank you,” rather stiffly.
 “Then my hand? You really had better, or you will come a most
awful cropper, and trip over the sleepers.”
“Here is an extraordinary adventure!” said Honor to herself. “What
would Jessie and Fairy say, if they could see me now, walking along
in the dark through a wild desolate country, hand-in-hand with an
absolutely strange young man, whose face I have never even seen?”
A short distance ahead were groups of chattering natives—women
with red dresses and brass lotahs, which caught the light of their
hand-lanterns (a lantern is to a native what an umbrella is to a
Briton); turbaned, long-legged men, who carried bundles, lamps, and
sticks. The line was bordered on either hand by thick hedges of
greyish cactus; here and there glimmered a white flower; here and
there an ancient bush showed bare distorted roots, like the ribs of
some defunct animal. Beyond stretched a dim mysterious landscape,
which looked weird and ghostly by the light of a few pale stars. The
night was still and oppressively warm.
“You will be met at Allahabad, I suppose?” observed Honor’s
unknown escort, after a considerable silence.
“Yes—by my aunt.”
“You must be looking forward to seeing her again?”
“Again! I have never seen her as yet.” She paused, and then
continued, “We are three girls at home, and my aunt and uncle
wished to have one of us on a visit, and I came.”
“Not very willingly, it would seem,” with a short laugh.
“No; I held out as long as I could. I am—or rather was—the useful
one at home.”
“And did your aunt and uncle stipulate for the most useful niece?”
“By no means—they—they, to tell you the truth, they asked for the
pretty one, and I am not the beauty of the family.”
“No? Am I to take your word for that, or are you merely fishing?”
“I assure you that I am not. I am afraid my aunt will be
disappointed; but it was unavoidable. My eldest sister writes, and
could not well give up what she calls her literary customers. My next
sister is—is—not strong, and so they sent me—a dernier ressort.”
She was speaking quite frankly to this stranger, and felt rather
ashamed of her garrulity; but he had a pleasant voice, he was the
first friendly soul she had come across since she had left home, and
she was desperately home-sick. A long solitary railway journey had
only increased her complaint, and she was ready to talk of home to
any one—would probably have talked of it to the chuprassi,—if he
could have understood her!
Her escort had been an unscrupulous, selfish little woman, whose
nurse, having proved a bad sailor, literally saddled her good-natured,
inexperienced charge with the care of two unruly children, and this in
a manner that excited considerable indignation among her fellow
passengers.
“Why should you call yourself a dernier ressort?” inquired her
companion, after a pause, during which they continued to stumble
along, she holding timidly by the young man’s arm.
“Because I am; and I told them at home with my very last breath
that I was not a bit suited for coming out here, and mixing with
strangers—nothing but strangers—and going perpetually into what is
called ‘smart’ society, and beginning a perfectly novel kind of life. I
shall get into no end of scrapes.”
“May I ask your reason for this dismal prophecy?”
“Surely you can guess! Because I cannot hold my tongue. I blurt
out the first thing that comes into my head. If I think a thing wrong, or
odd, I must say so; I cannot help it, I am incurable. People at home
are used to me, and don’t mind. Also, I have a frightful and wholly
unconscious habit of selecting the most uncomfortable topics, and
an extremely bad memory for the names and faces of people with
whom I have but a slight acquaintance; so you see that I am not
likely to be a social success!”
“Let us hope that you take a gloomy view of yourself. For instance,
what is your idea of an uncomfortable topic?”
 “If I am talking to a person with a cast in the eye, I am positively
certain ere long to find myself conversing volubly about squints; or, if
my partner wears a wig, I am bound to bring wigs on the tapis. I
believe I am possessed by some mischievous imp, who enjoys my
subsequent torture.”
“Pray how do you know that I have not a squint, or a wig, or both?
A wig would not be half a bad thing in this hot climate; to take off
your hair as you do your hat would often be a great relief! Ah, here
we are coming to the scene of the collision at last,” and presently
they passed by a long row of waggons, and then two huge engines,
one across the line, the other reared up against it; an immense
bonfire burnt on the bank, and threw the great black monsters into
strong outline. Further on they came to a gate and level crossing.
The gate of the keeper’s hut stood wide open, and on the threshold
a grey-haired old woman sat with her head between her knees,
sobbing; within were moans, as if wrung from a sufferer in acute
anguish. Honor’s unknown companion suddenly halted, and
exclaimed impulsively—
“I’m afraid some one has been badly hurt; if you don’t mind, I’ll just
go and see.”
Almost ere she had nodded a quick affirmative, he had vaulted
over the gate, and left her.
 CHAPTER XII.
TWO GOOD SAMARITANS.

In all her life, the youngest Miss Gordon had never felt so utterly
solitary or forsaken as now, when she stood alone on the line of the
Great Indian Peninsular Railway. Before her the party of natives, with
their twinkling lanterns, were gradually reaching vanishing point;
behind her was a long, still procession of trucks and waggons, that
looked like some dreadful black monster waiting for its prey; on
either hand stretched the greyish unknown mysterious landscape,
from which strange unfamiliar sounds, in the shape of croakings and
cries, were audible. Oh! when would her nameless companion
return? She glanced anxiously towards the hut, it was beyond the
gate, and down a steep bank, away from the road; animated figures
seemed to pass to and fro against the lighted open door. Ah! here
came one of them, her escort, who had in point of fact been only
absent five minutes, and not, as she imagined, half an hour.
“It is a stoker who has been cut about the head and badly
scalded,” he explained breathlessly. “They are waiting for an
apothecary from Okara, and meanwhile they are trying a native herb
and a charm. They don’t seem to do the poor chap much good. I
think I might be able to do something better for him, though I have no
experience, beyond seeing accidents at football and out hunting; but
I cannot leave you here like this, and yet I cannot well ask you inside
the hut, the heat is like a furnace—and—altogether—it—it would be
too much for you, but if you would not mind waiting outside just for a
few minutes, I’d get you something to sit on.”
“Thank you, but I would rather go in—I have attended an
ambulance class—‘first aid,’ you know, and perhaps I may be of
some little use; there is sticking-plaster, eau-de-Cologne, and a pair
of scissors in my bag.”
 “Well, mind; you must brace up your nerves,” he answered, as he
pushed open the gate, and led her down the crumbling sandy incline.
The heat within the hut was almost suffocating; as the girl,
following her guide, entered, every eye was instantly fixed upon her
in wide surprise.
By the light of a small earthen lamp, which smoked horribly, she
distinguished the figure of a man crouching on the edge of a
charpoy; he was breathing in hard hoarse gasps, and bleeding from
a great gash above his eye.
A Eurasian, in a checked cotton suit, stood by, talking incessantly
—but doing nothing else. There were also present, besides the old
woman—a veritable shrivelled-up hag—two native men, possibly the
“bhai-bands,” or chums of the sufferer; in a corner, a large black
pariah sat watching everything, with a pair of unwinking yellow eyes;
and on another charpoy lay a still figure, covered with a sheet. A few
earthen chatties, a mat, a huka, and some gaudy English prints—for
the most part nailed upside down—completed the picture. Hitherto
the travelling companions had been to each other merely the
embodiment of an undefined figure and a voice; the light of the little
mud lamp, whose curling smoke threw outlines of dancing black
devils on the walls, now introduced them for the first time face to
face. To Honor Gordon stood revealed an unexpectedly good-looking
young man, slight and well built, with severely cut features, and a
pair of handsome hazel eyes, which were surveying her gravely. A
gentleman, not merely in his speech and actions, but in his bearing.
He, on his part, was not in the least surprised to behold a pale but
decidedly pretty girl; by means of some mysterious instinct he had
long made up his mind that the owner of such a delicate hand and
sweet clear voice could not be otherwise than fair to see.
“The apothecary cannot be here for one hour!” exclaimed the
Eurasian, glibly. “He,” pointing to the patient, “is very bad. We have
put some herbs to his arm, and the back of his head; but I, myself,
think that he will die!” he concluded with an air of melancholy
importance.
 Some kind of a bandage was the first thing Honor asked for, and
asked for in vain; she then quickly unwound the puggaree from her
topee, and tore it into three parts.
Then she bathed and bandaged the man’s head, with quick and
sympathetic fingers, whilst Jervis held the lamp, offered suggestions,
and looked on, no less impressed than amazed; he had hitherto had
an idea that girls always screamed and shrank away from the sight
of blood and horrors.
This girl, though undeniably white, was as cool and self-
possessed, as firm, yet gentle, as any capable professional nurse.
The scalded arm and hand—a shocking spectacle—were attended
to by both. The great thing was to exclude the air, and give the
sufferer at least temporary relief. With some native flour, a bandage
was deftly applied, the arm placed in a sling, and the patient’s head
was bathed with water and eau-de-Cologne. Fanned assiduously by
the girl’s fan, he began to feel restored, he had been given heart, he
had been assured that his hurts were not mortal, and presently he
languidly declared himself better.
The natives who stood round, whilst the sahib and Miss Sahib
ministered so quickly and effectually to their friend, now changed
their lamentations to loud ejaculations of wonder and praise. Miss
Gordon was amazed to hear her companion giving directions to
these spectators in fluent and sonorous Hindustani, and still more
astounded when, as she took up her topee, preparatory to departure,
the Eurasian turned to him, and said in an impressive squeak—
“Sir, your wife is a saint—an angel of goodness”—and then, as an
hasty afterthought, he added, “and beauty!”
Before Jervis could collect his wits and speak, she had replied—
“I am not this gentleman’s wife; we are only fellow-passengers.
Why should you think so?” she demanded sharply.
“Because—oh, please do not be angry—you looked so suitable,”
he answered with disarming candour. “Truly, I hope you may be
married yet, and I wish you both riches, long life, and great
happiness,” he added, bowing very low, lamp in hand.
 Honor passed out of the hut, with her head held extraordinarily
high, scrambled up the bank, and proceeded along the line at a
headlong pace in indignant silence.
She now maintained a considerable distance between herself and
her escort; no doubt her eyes were becoming accustomed to the dim
light, and at any rate there was that in her air which prevented him
offering either arm or hand. In spite of the recent scene in which they
had both been actors, where he had clipped hair and cut plaster, and
she had applied bandages and scanty remedies to the same “case,”
they were not drawn closer together; on the contrary, they were
much further apart than during the first portion of their walk, and the
young lady’s confidences had now entirely ceased. She confined
herself exclusively to a few bald remarks about the patient, and the
climate, remarks issued at intervals of ten minutes, and her answers
to his observations were confined to “Yes” and “No.” At last Okara
station was reached; and, to tell the truth, neither of them were sorry
to bring their tête-à-tête to a conclusion. The dazzling lights on the
platform made their eyes blink, as they threaded their way to the
general refreshment room, discovering it readily enough by sounds
of many and merry voices, who were evidently availing themselves
of its somewhat limited resources.
It was not a very large apartment, but it was full. The table was
covered with a thin native tablecloth, two large lamps with punkah
tops, and two cruet-stands and an American ice-pitcher were placed
at formal intervals down the middle. It was surrounded with people,
who were eating, drinking, and talking. At the further end sat Captain
Waring, supported on either hand by his two fair companions, three
men—young and noisy, whom they evidently knew—and a prim,
elderly woman, who looked inexpressibly shocked at the company,
and had pointedly fenced herself off from Mrs. Bellett with a teapot
and a wine-card. Captain Waring’s friends had not partaken of tea
(as the champagne-bottle testified). The tongue, cake, and fruit had
also evidently received distinguished marks of their esteem. Mrs.
Bellett put up her long eyeglass, and surveyed exhaustively the pair
who now entered.