Executive control of the organization is centered in a Board of National Directors operating from National Headquarters at Washington, D. C., in coöperation with the Department of Justice, and through it with other departments and agencies of the Government; this Board being established to coördinate the activities of the local branches throughout the country.
Divisional headquarters are established in the various States to coördinate the work of local branches operating throughout the divisional territory; to keep in touch with the work of each; to promote their efficiency and to render them practical assistance; and to establish and maintain ready communication with Agents in Charge of the Bureau of Investigation of the United States Department of Justice; and to develop methods of operation.
The work of the American Protective League in the field is performed through the local branches. The Chief of the Local Branch is appointed, and is subject to removal, by the Board of National Directors. He is the directing head of the organization and responsible therefor. He will appoint an Assistant Chief; and, in his discretion, an Advisory Committee.
Members of the organization must be American citizens of legal age, of good character and absolute loyalty, who undertake to serve from patriotic motives and without compensation. The reward of a member is the opportunity to serve the Government in a responsible way in matters of grave importance. The selection of members is a most important duty devolving upon the Chief, both because the future efficiency of the Local Branch is dependent upon its personnel, and because of the potential danger involved in mistakes in enrollment. The interest of the Government and the ability of the candidate to render efficient service are the first considerations and are paramount to any considerations of business, family or friendship.
Every member of the organization must subscribe and swear to the formal oath before enrollment. This rule will be rigidly enforced and no member will be recognized as such until this action has been taken. The candidate will be sworn in before an officer qualified to administer oaths.
Strict observance by members of the rules and regulations of the organization is required. The Government must not be embarrassed by unauthorized action of members in the attempted performance of their duties. Experience has demonstrated the value of a Trial Board consisting of disinterested and responsible members of sound and unprejudiced judgment.
The Bureau of Finance procures the funds necessary for the work of the organization from voluntary contribution of citizens, and has charge of all expenditures. It is important that an accurate system of requisition and voucher be installed and that all contributions be strictly accounted for. Periodic audits should be made at regular intervals. No volunteer member of the League should be allowed to profit through his service.
Local Branches should not derive their revenue from any single person or interest, but should secure them from various sources so that no individual or business interest shall at any time be in a position to dictate as to the personnel, policy or activity of the Local Branch. Great care should be exercised that no alien enemy, or person in sympathy with the cause of the enemy, be allowed to contribute money and thereby discredit the organization. Experience has shown that through appreciation of the protection afforded the community by a competent local organization, adequate funds may readily be secured from responsible citizens. Each Local Branch is self-supporting, and will be requested to make its proportionate contribution toward defraying the expenses of the National and Divisional Headquarters. The efficient operation of these Headquarters, and their usefulness to the Local Branches, require adequate quarters, equipment and clerical assistance; and involve large expense for printing and distribution of bulletins of instruction and other literature.
The Bureau of Law maintains an adequate corps of competent lawyers. It advises operatives upon all matters relating to their work, including questions of right and authority, the competency of evidence, etc. It assigns individual attorneys to direct particular investigations, and gives advice as to the construction of laws. It revises the reports of operatives, and briefs the same for submission to the Bureau of Investigation of the Department of Justice. In large and thickly populated communities a zone or district system of organization has proven most effective, members being assigned according to their residence. Under this plan the territory is divided into inspection districts, each under the command of an inspector. Each inspection district is in turn subdivided into convenient territorial units, each under the direction of a captain. Under each captain is a company consisting of the requisite number of platoons, each under the command of a lieutenant. No platoon should exceed ten men in size. Each inspector is definitely responsible to the Chief for the territory in his district, and each captain is responsible to his inspector for the territory assigned to him. Cases for investigation within a district are assigned to the inspector for that district and by him through a captain to the men best fitted for the work. An auxiliary squad for emergency work may operate directly from headquarters.
Experience has shown that a company under a captain should not exceed fifty men. The organization of a company is indicated in the general chart.
The Investigation Bureau should establish and maintain a close association with the Agent in Charge of the Bureau of Investigation of the United States in order to render the greatest possible assistance to the Department of Justice. In the larger cities and wherever possible it is highly desirable that a Special Agent of the Department of Justice be assigned to the Local Branch to direct the work of investigation.
It is the duty of each division chief to extend the organization throughout the city within the lines of his department in such manner as to attain so far as practicable the following ends: (1) the enlistment of responsible persons of sufficient number in each bank, business house and industrial plant of importance, whose sworn duty it will be to promptly report through the proper channel all cases of disloyalty, industrial disturbance, or other matter likely to injure or embarrass the Government of the United States; and (2) the establishment of an organization, through such means, which will at all times be ready and able to assist the operation of the Investigation Bureau of the Local Branch and of the Department of Justice when their investigations shall require an entrance into and the securing of information from such banking, business or industrial establishments.
In this Bureau large numbers of citizens will be enrolled, forming a WEB of communication throughout the community, by means of which quick and responsible report will be made of any and all matters affecting the welfare of the country during the present crisis. The duty of members to report will extend to all industrial, social or political plans or conspiracies, and to all other activities or utterances, designed to embarrass the Government in the prosecution of the war.
In extending the organization each Division Supervisor, after his enrollment, will prepare a comprehensive plan covering the ground of his division. He will then proceed to enlist as Deputies under him, a responsible man in each plant or business house within his jurisdiction, such deputies to be executive officers of their respective business concerns if practicable. The deputies after enrollment will select as aids a reliable man in each department of the business, preferably a superintendent, foreman or other man filling a responsible position in his department. The deputies will then confer with the aids and explain to them the nature of the organization and the scope of their duties. The aids will suggest to the deputies the names of several trusted employes in each department who are American citizens of legal age and who, on account of their long service and general character, can be relied upon for loyal service to the country and the employer. The men so suggested as Reporters will not be approached in the matter by the deputies or aids. After the selection of the aids and reporters, the deputy will report his complete plan of organization to the Chief of the Local Branch, and upon approval of the organization the aids and reporters will be directed by the Chief to attend at convenient times for the purpose of being sworn in.
The Real Estate Division reports all information secured by its members, and furnishes investigators with facts connected with the construction of buildings and occupations of and removals from office buildings, houses and apartments.
The Financial Division includes banks, stock and bond houses and safety deposit vaults, reports all information coming to its members, and furnishes to investigators facts with regard to foreign transactions, use of alien enemy funds and transactions with Germans. The department will furnish valuable information in connection with the use of safety deposit vaults by alien enemies.
The Insurance Division provides useful information through insurance inspectors of the character and use of buildings and plants, and reports upon casualties; it also provides life insurance data upon individuals and details of marine insurance.
The Professional Division includes engineers, accountants, physicians and other professions, and in addition to reporting information coming to the knowledge of its members, is called upon for professional assistance and advice in connection with work of the investigators.
The Hotels Division includes hotels, restaurants and theatres. The division is organized so that responsible persons will be enlisted in all departments of all of the hotels and restaurants. They will be able to make prompt and reliable reports on the doings of all transients and others connected with the hotels and restaurants.
The Transportation Division covers all railroads, shipping, taxicabs and teaming. This division will report information and assist in investigations throughout these interests.
The Public Utilities Division includes all lines and methods of communication, including telephone, telegraph, wireless, electric light, gas, elevated and traction lines and other local transportation.
The General Merchandise Division includes mail order houses, department stores, retail and wholesale houses.
The Division of Industries is subdivided as follows: munitions, war equipment, metal trades, lumber trades, electrical, packing houses, grain, foodstuffs, chemicals and paints, and miscellaneous. The Miscellaneous Subdivision will include, under separate deputies, automobiles, building material, cigars and tobacco, coal, contractors, leather, motion picture producers, paper trades, photographers, and printers and engravers.
Any one of these subdivisions may be of sufficient importance in a given community to constitute a separate Division. On the other hand, many of the above divisions when locally unimportant may be included in “Miscellaneous.”
The work of each Local Branch is under the responsible direction and control of the Local Chief. He is responsible for the efficiency of the work. It is essential that an Assistant Chief be appointed to counsel with the Chief and to act with authority in his absence.
In cities of larger size an office in good location, convenient to the Department of Justice, is desirable. An efficient organization will readily command adequate financial support, and the work will be carried on with less publicity and greater efficiency in an independent office, suitably equipped. Adequate clerical and stenographic help should be provided so that investigations and reports may be promptly made.
In connection with the central office the services of volunteer interpreters should be available at all times for translating papers and interviewing witnesses.
Full coöperation with Government and police officials should be promptly secured so that they may be quickly available in all cases of emergency.
The work of the various Branches and Divisions should be coordinated through the central office so that information or assistance of any kind may be promptly secured at any time by any member from any other department through the established channel.
Each Local Branch will operate in close coöperation with and under the general direction of the Government Agent in charge of the nearest office of the Bureau of Investigation of the Department of Justice, and all reports of investigations, unless otherwise directed, will be made to him. The Local Branch will coöperate at all times, through the Department of Justice, with other Governmental Departments and agencies, but will undertake no work from them by direct assignment except with the knowledge of the Bureau of Investigation of the United States Department of Justice, or by instruction from National Headquarters. It is the desire of the organization to render useful service to all Departments of the Government.
Members will always be mindful of the fact that they are acting in the interests of the Department of Justice of the United States and conduct themselves with dignity, tact and discretion. They must refrain from words and conduct in any way calculated to bring the Government or the organization into disrespect.
The work of the members must be carried on wholly without publicity or personal advertisement.
Members will not discuss cases assigned to them with other members or officers of the organization, but will make their reports to their immediate superiors. Members will not take outside individuals into their confidence.
Members must not permit the source of information of any complaint, or the name of the complainant, to be disclosed under any circumstances. They will state in all cases where opportunity offers that neither the American Protective League nor the Department of Justice will disclose directly or indirectly to any person the name or the complainant or any person giving information with regard to the suspect. This cannot be too strongly impressed upon all persons with whom the organization comes in contact.
No member shall inform the suspect or his family of the fact of the investigation, or interview them regarding the subject of inquiry, without direct authority from his Captain or Chief.
Members will not disclose to suspects, or to persons not connected with the organization, the names of other members or officers of the League. It is important that the work of the League be impersonal. The enforcement of this rule is likewise necessary to safeguard the officers and members of the League in their work.
Abuse of their credentials by members by public exhibition or otherwise will be ground for immediate discharge from membership. The use of such credentials under an assumption of authority for the purpose of escaping penalties for automobile speeding, or otherwise, or to secure special privileges in theatres, street cars and other public places is likewise ground for dismissal. No member will be permitted by such means to embarrass the organization in its work and in its relation with public officials.
Members are not privileged through membership in the organization to carry firearms or other weapons forbidden by law. The carrying of such weapons at any time is wholly upon the responsibility of the individual.
No member will be exempt from military service under the requirements of the Selective Service Regulations, or otherwise, by reason of his membership in the organization.
Members will carefully avoid any representation, direct or indirect, that they are Government officers; and will particularly avoid any statement or implication that they are members of the “Secret Service Department of the United States.” The American Protective League is organized with the approval and is operating under the direction of the United States Department of Justice, Bureau of Investigation. It is not connected with the Secret Service Division of the Treasury Department.
When making investigations after receipt of instructions members of the American Protective League are authorized to state that they are making the investigation “for the Department of Justice.”
Members of the American Protective League have no general powers of arrest. They are investigators only, and have no greater power than private citizens in the matter of arrests. As a general rule a citizen can make an arrest without warrant where a felony has been committed in his presence, but there is no authority for a citizen to make an arrest without a warrant to prevent the commission of a misdemeanor, or for a misdemeanor committed in his presence which does not amount to a breach of the peace. At common law, and except where changed by statute, it is the duty of every citizen to assist in preserving the public peace and safety. Any citizen may arrest without a warrant one who commits a breach of the peace in his presence, or where there is reasonable ground for apprehension that the arrested person is about to commit a breach of the peace. It is essential to justify such an arrest that the offense committed shall amount to a breach of the peace, that such offense shall have been actually committed or attempted in the presence of the person making the arrest, and that the arrest be made at the time when the offense was committed. No private person has the right to make an arrest for a misdemeanor without a warrant after the event or upon mere information or suspicion. The term “breach of the peace” is a generic one, and includes riots, unlawful assemblies, riotous and wanton discharge of firearms in the public streets, affrays, assaults, the use of profane, indecent and abusive language on the street, and in the presence of others, and other acts destroying public order and tranquility. The right of citizens in this regard, however, depends somewhat upon the Statutes of the several States and members should be advised by their Local Chiefs of their authority in the premises. They should act only where the regular police officers are not reasonably available and where inaction may be productive of serious results.
Under the laws of the United States (Act of August 29, 1916; C. 418, Sec. 3) it is lawful for any civil officer having authority under the laws of the United States or of any State, Territory, District, or possession of the United States to arrest offenders, summarily to arrest a deserter from the military service of the United States. Under the opinion of the Judge Advocate General of the Army (C. 17327-1) a citizen acting under an order or direction of a military officer may apprehend a deserter, but a citizen, and this term includes a member of the American Protective League, has no authority as such to arrest a deserter from the army in the absence of a special request or direction of a military officer.
It is seldom that the necessity for arrest arises. In such a case the member will notify his Chief who will secure prompt action by the proper authorities.
Cases will be assigned for investigation by the Chief to inspectors and by them transmitted through the captains to the lieutenants, who will assign them to the members best qualified for the particular work. All reports must be submitted in writing through the lieutenants and captains to the inspectors, and by the inspectors to the central office. All reports of a confidential nature should be brought to the office by the inspectors in person or by private messenger. In the smaller cities where inspection districts are not created, the above rules will be accordingly modified.
All investigations and reports are the business of the League and must become matters of permanent record. They may not be suppressed or destroyed, but must be disposed of in regular course through the established channels of the Bureau of Investigation of the United States Department of Justice.
Great opportunity for service is afforded the American Protective League in reporting promptly and accurately all evidence of enemy propaganda throughout the country. The League is in a peculiarly advantageous position to secure this information and present it to the authorities at Washington.