Ah, it's a turtle!
I should have tried it earlier, but if you Google
turtle police radio car, then up comes this picture from the Grandview Heights and Marble Cliff Historical Society.
So the gentleman is Robert Livingston, Chief of Police from Grandview Heights, Ohio, and he is using a shovel to "rescue" a turtle and place it in the car in a photo from 1948.
Or is he? The photo has obviously been "got at", and the turtle looks as if it has been rather crudely drawn in on the print or negative. Perhaps it wasn't very clear in the original picture (but the rest of the shot is), or maybe there was something else on the shovel, which I wouldn't care to speculate about...
Anyway, it appears to be the 1948 equivalent of a bit of obvious (and not very convincing) Photoshopping.
Here's the caption.
Grandview Police Chief Robert "Rancho" Livingston is rescuing a turtle at the corner of First and Virginia Avenues in this 1948 photograph, using a shovel to place the turtle in the city's radio cruiser. Befitting the times he is wearing a suit and his trademark hat. The identity of the children is unknown as are the circumstances surrounding the photograph. It is not known whether this was a candid shot or staged as part of a municipal promotion. Nonetheless, it is a testimony to the high level of community services historically enjoyed by the citizens of Grandview Heights and Marble Cliff.