The most important feature of this reorganization was the appointment of Bales to Field Operations. To some degree, it helped to ensure Bales's future loyalty. In addition to feeling disappointed at his failure to be appointed chief, Bales knew that his efforts to claim the job had alienated him from his peers, and possibly from Brown. By placing him in a powerful position, Brown rehabilitated him in the eyes of the organization. Moreover, Brown and Bales agreed that the success of the Houston Police Department depended on improvements in patrol force operations.
This shared conviction cemented their emerging working partnership. Finally, Bales was considered a strong and important figure by the department's rank and file, particularly in comparison with the relatively accommodating McKeehan. Thus, by replacing McKeehan with newly energized, broadly experienced Bales, Brown signaled that patrol operations were to be the highest priority in the department. Brown recalls his reasons for this appointment succinctly: "Bales and I didn't have a difference. We basically agreed on the importance of patrol. And I didn't need a Chief of Staff." (Ibid., p. 11).
Significantly, the report began with recommendations for changes in Field Operations. That opening reflected Brown's conviction that reforms in patrol operations were necessary and would be sufficient to improve the overall quality of policing. It was also consistent with his decision to rely a great deal on John Bales, who headed this command. With respect to patrol operations, the report committed the organization to "move toward achieving" five key operational characteristics.
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