GOOD COP, BAD COP

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In the end, none of the institutional machinery to discourage brutality works without a clear message from the top that bad cops are bad news. New York's Giuliani may have sent out the wrong signal even before he was elected. While still a candidate, he addressed a wild demonstration of 10,000 out-of-uniform officers who assembled outside city hall to protest the decision by then Mayor David Dinkins to establish the city's civilian review board. After taking office, Giuliani was repeatedly accused of dragging his feet on hiring investigators for the board. Last year, when he tried to cut a fourth of the investigative staff, the city council said no.

An effective board is still a lot cheaper than an out-of-control police force. Louima, the victim in the latest assault, announced plans last week to file a $55 million lawsuit against the city. Though in the past Giuliani has defended officers accused of egregious violence, in this episode he opted swiftly for the victim. He also announced plans for six months of town meetings between New Yorkers and every one of the city's 38,000 officers. Maybe all that talk could have been avoided if the cops had earlier heard a clearer statement about brutality from the mayor's office.

--Reported by Jyl Benson/New Orleans, James L. Graff/Chicago, Margot Hornblower/Los Angeles, Elaine Rivera/ New York and Tom Witkowski/Boston