assuming responsibilities traditionally considered those of the U.S. Attorney, a closer working relationship can be established between CRM and the OUSA.

Where the internal factors affecting program success are favorable, and there exists an atmosphere conducive to the Specialist acting as a change-agent, he should be able to enhance the relationship the OUSAs, CRM and the investigative agencies. The support and acceptance of the Specialist by the OUSA, including a supportive use of the office's declination policies, will assist the Specialist in promoting the program within the investigative agencies, since they rely on the OUSA to prosecute their cases. If they feel the Specialist speaks for the U.S. Attorney, they should be willing to work toward the program objectives. This, in turn, should have a positive affect on the OUSA's attitude toward the investigative agencies, since the cases they present to the OUSA should be stronger, more significant and complete than prior to the program.

The U.S. Attorney, in forming an ECE unit, determines the Specialist's position organizationally within the OUSA: whether he will be structured as an integral part of the unit or serve as an adjunct to the unit. This organizational structure integral or adjunct is determined, in large part, by the functions of the Specialist as authorized by the U.S. Attorney. In the seven sites surveyed, it was the view of the study team that four of the Specialists functioned as an integral part of the ECE unit and three Specialists functioned in an adjunct capacity. In the adjunct position, the Specialist's scope of activity was generally limited to the following: preparing district reports and gathering white-collar crime information; encouraging the investigating

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agencies to pursue major white-collar cases; developing the general public's awareness of the white-collar crime problem; and educating them in methods of detection and prevention. However, once the Specialist is armed with information and contacts, he is prepared to act as a catalyst for implementing a new approach to the investigative/prosecutive aspects of white-collar crime cases as well as ensuring that district priority cases become the major emphasis of the unit. At this point it becomes more valuable for the Specialist to be in an integrated position, in which the Specialist is involved in such activities as: policy decisions concerning white-collar crime case selection and assignments; coordination of major cases with AUSAS and investigating agents; review and approval of documents prepared for court; and prosecution of selected cases.

The integrated position provides the Specialist with greater acceptance in the OUSA and assists him in implementing program objectives because he directly participates in those activities which produce positive changes in the investigation and prosecution of white-collar crime cases.

The study findings indicate that in offices where the Specialist functioned in an adjunct position to the unit, it was due to a number of factors, some arising from the OUSAS views of or prior experience with the Department, other factors being contingent upon the OUSA's expectations of the Specialist. Some of these factors are:

the perception within the office that the Specialist was there as

a "spy" for the Department;

the view that personnel from the Department will "interfere or take
over" certain OUSA operations or cases;

the unwillingness AUSAs to accept the Specialist as having expertise
in white-collar crime matters;

the unwillingness of the supervisory personnel of the OUSA to accept

the concept of the program or the role and function of the Specialists; and/or

the OUSA's perception of the Specialist as an additional line prosecutor rather than primarily as a change-agent.

On the other hand, in offices where the Specialist's functions are integral to the unit, the U.S. Attorneys have become aware of the worth of the Specialist and the differences between this program and other CRM initiatives (e.g., Strike Force). These U.S. Attorneys could be a valuable resource to CRM in promoting the program in other offices.

It is recognized that during the implementation phase of the ECE program, it was appropriate to allow for the emergence of different patterns of structuring the relationship of the Specialist to the ECE unit, for this provided an opportunity for the U.S. Attorney to form the unit on the basis of his perceived needs, his understanding and expectations of the program, and for CRM to assess the effect that varying organizational models have upon achievement of program objectives. Based upon the study of the seven ECE units and recognizing the importance of the Specialist as a change-agent, it is the professional judgment of the study team that where the Specialist is structured as an integral part of the ECE unit, the program becomes a vital part of the

ISA, the sequence of implementing program activities and objectives is

accomplished more efficiently and effectively, and that this structure is, therefore, the more desirable one.

Conclusions

That the implementation of the ECE program and achievement of program goals and objectives are affected, in large part, by the organizational relationship of the Specialist to the ECE unit, and by the acceptance of the role and function of the Specialist by the U.S. Attorney; and

That where the Specialist is structured as an integral part of the ECE unit, the program becomes a vital part of the OUSA, and program objectives are accomplished more efficiently and effectively.

Recommendation

That CRM, in establishing new ECE units, ensure that Specialists will

be organizationally and functionally structured into the OUSA as an integral member of the ECE unit.

WHAT ATTRIBUTES OF AND ROLE FOR THE SPECIALIST IN HIS ECE REGION WILL BEST ENSURE THE EFFECTIVE AND EFFICIENT UTILIZATION OF CRM RESOURCES?

The Specialist's role requires him to interact with numerous persons on various aspects of white-collar crime enforcement. Given an environment receptive to the ECE program, he is the key to the success or failure of the program in his district. Therefore, the careful and considered selection of the Specialist can be critical to the ultimate success of the program.

From the study team's discussions with CRM employees, the following attributes

were found to be important or beneficial to the selection of the Specialist:

and hopefully, in fraud and public corruption;

diplomacy, an ability to get along with people, to develop their

interest and cooperative participation in the program;

an ability to organize and an understanding of management;

a knowledge of the law and available legal procedures in white-collar crime, and a knowledge of the district to which he is assigned; and

an interest in the ECE program.

Although the study team did not review the Specialists' backgrounds and expertise in any depth, in general, they appeared to be well qualified to discharge their program responsibilities. However, there is the potential for future difficulties in program progress because certain functions of the Specialist's role have not been well defined. These functions include the Specialist's role in:

the selection, assignment and continuing oversight of white-collar crime cases;

the development of targeted investigations, especially when they

involve the participation of two or more investigative agencies;

and

O the prosecution of white-collar criminal cases.