THE POLICE HAVE BEEN PARTICULARY SUSCEPTIBLE TO THE 'MEANS OVER ENDS' SYNDROME--THEY PLACE MORE EMPHASIS IN THEIR IMPROVEMENT EFFORTS ON ORGANIZATION AND OPERATING METHODS THAN ON THE SUBSTANTIVE OUTCOME OF THEIR WORK. THIS CONDITION HAS BEEN FED BY THE PROFESSIONAL MOVEMENT WITHIN THE POLICE FIELD, WITH ITS CONCENTRATION ON THE STAFFING, MANAGEMENT, AND ORGANIZATION OF POLICE AGENCIES. HOWEVER, THE WIDELY HELD ASSUMPTION THAT IMPROVEMENTS IN INTERNAL MANAGEMENT OF POLICE DEPARTMENTS WILL ENABLE THE POLICE TO DEAL MORE EFFECTIVELY WITH THE PROBLEMS THEY MUST HANDLE IS COMING MORE AND MORE UNDER FIRE. FURTHERMORE, IF THE POLICE ARE TO REALIZE A GREATER RETURN ON THE INVESTMENT MADE IN IMPROVING OPERATIONS--AN OVERRIDING CONCERN GIVEN THE RISE OF TAX CUT PROPOSITIONS AND INCREASED CONSUMER AWARENESS--THEY MUST CONCERN THEMSELVES MORE DIRECTLY WITH THE END PRODUCT OF THEIR EFFORTS. MEETING THIS DEMAND REQUIRES THAT POLICE DEVELOP A MORE SYSTEMATIC PROCESS FOR EXAMINING AND ADDRESSING THE PROBLEMS THAT THE PUBLIC EXPECTS THEM TO HANDLE. IT REQUIRES IDENTIFYING THESE PROBLEMS MORE PRECISELY, RESEARCHING EACH PROBLEM, DOCUMENTING THE NATURE OF THE EXISTING POLICE RESPONSE, ASSESSING ITS ADEQUACY, ENGAGING A BROAD EXPLORATION OF ALTERNATIVES, WEIGHING THE MERITS OF THESE ALTERNATIVES, AND CHOOSING AMONG THEM. SUCH ALTERNATIVES MAY INVOLVE PHYSICAL AND TECHNICAL CHANGES, CHANGES IN THE PROVISION OF GOVERNMENT SERVICES, CONVEYING RELIABLE INFORMATION, DEVELOPING NEW POLICE SKILLS, ESTABLISHING NEW LINES OF AUTHORITY, DEVELOPING COMMUNITY RESOURCES, USE OF ZONING, OR INCREASED REGULATION AND USE OF CITY ORDINANCES. ALTHOUGH IMPROVMENTS IN STAFFING, ORGANIZATION, AND MANAGEMENT REMAIN IMPORTANT, THEY SHOULD BE ACHIEVED WITHIN THE CONTEXT OF MORE DIRECT CONCERN WITH THE OUTCOME OF POLICING. REFERENCES ARE FOOTNOTED. (AUTHOR ABSTRACT MODIFIED--KBL)