armies, hospitals, and police departments are included within this meaning, whereas families and friendship groups are not. 4 Schein defines an organization as the rational coordination of the activities of a number of people for the achievement of some common explicit purpose or goal, through division of labor and function and a hierarchy of authority and responsibility. 5 Blau and Scott identify four types of formal organizations by asking the question of cui bono, or who benefits:( 1) mutual benefit associations, such as police labor unions, where the primary beneficiary is the membership;( 2) business concerns, such as Lynn Peavey, which sells crime scene equipment and supplies, where the owner is the prime beneficiary;( 3) service organizations, such as community mental health centers, where a specific client group is the prime beneficiary; and( 4) commonweal organizations, such as the Department of Defense and law enforcement agencies, where the beneficiary is the public at large. 6 Each of these four types of formal organizations has its own central issues. 7 Mutual benefit associations, such as police unions, face the crucial problem of maintaining the internal democratic processes— providing for participation and control by their membership. For businesses, the central issue is maximizing profits in a competitive environment. Service organizations are faced with the conflict between administrative regulations and provision of the services judged by the professional to be most appropriate. In the case of a community mental health center, an illustration is that, following a reduction in funding, a regulation is placed into effect that requires all clients to be treated in group sessions when the psychiatric social worker believes the only effective treatment for a particular client is to be seen individually. The key issue for law enforcement agencies and other types of commonweal organizations is finding a way to accommodate pressures from two sources:( 1) external democratic control and( 2) internal control. The public expects to have external democratic control of its police department through its elected and appointed representatives. This external democratic control feature also has the expectation that the internal workings of the police department will be effective and efficient, but not also democratic. This is because