Social scientists who study police organisations recognise certain characteristics which are common to most of them. One such characteristic is that police generally reflect the political ethos of the community they serve. They are seldom far behind its prevailing values and preoccupations. They are even more seldom ahead of them.
The Royal Ulster Constabulary, whose new Chief Constable, Mr Ronnie Flanagan, has just taken over the reins of command, is no exception. It is a force of men and women which has striven bravely to cling to the middle ground but which finds itself under constant pressure to respond to the gravitational pull of the extremes. Few would envy Mr Flanagan his task over the years ahead.
Much is expected of the new Chief Constable and he comes to office with a remarkably broad spread of support among politicians and community spokespersons. He is recognised as fair, open minded and heedful of both communities' separate sense of needing more from the police service. The great danger may be that too much is expected of him. Police forces do not lead in creating a new political climate. They respond to the changes which are created by the political leadership.
Most RUC officers would not have difficulty in recognising the force depicted in a recent academic study of members' attitudes. Police officers are not free of their own communities preconceptions and prejudices. The difficulties in welding ordinary men and women, of varying denominations, into a professional police service are enormous. It would be difficult in conditions of peace. In conditions where a paramilitary force still claims the right to murder police officers it becomes a gargantuan task.
Mr Flanagan starts with enormous goodwill. He also starts with some of the right attitudes - or so it is reported. He believes in eliminating the visible signs which tend to align the RUC in the eyes of many with one side of the population in the North. Union Jacks and portraits of Queen Elizabeth are fine in the offices of the London Metropolitan Police. They can have different resonances for many of the clients who visit police stations in Belfast.
He is also committed to improving on the ground contacts between the RUC and the community. The force's hierarchical structure has militated considerably against relations at local level between citizens and police. It has long been felt that a reworking of the command structure should make it possible for local police chiefs to respond more directly and precisely to community needs and for community leaders to get their message across more directly and more effectively to local commanders.
The RUC will not motion fully as a normal police service until the politicians find a formula which changes the political climate in Northern Ireland. But there are some things which the police can do for themselves. Mr Flanagan is unlikely to be found wanting in making those improvements.