Table Of ContentPolice Innovation
and
Control of the Police
David Weisburd Craig Uchida
Editors
with Lorraine Green
Police Innovation and
Control of the Police
Problems of Law, Order, and
Community
Springer-Verlag
New York Berlin Heidelberg London Paris
Tokyo Hong Kong Barcelona Budapest
David Weisburd, Ph.D. Craig Uchida, Ph.D.
Director Deputy Director
Center for Crime Prevention Studies National Institute of Justice
Rutgers University 633 Indiana Avenue, N.W.
15 Washington Street Washington, DC 20531, USA
Newark, NJ 07102, USA
and Associate Professor
Institute of Criminology
Hebrew University Law School
Jerusalem, Israel
Library of Congress Cataloging-in-Publication Data
Police innovation and control of the police : problems of law, order,
and community / David Weisburd, Craig Uchida, editors.
p. cm.
Includes bibliographical references.
ISBN 0-387-94013-8 (New York). - ISBN 3-540-94013-8 (Berlin)
1. Community policing - United States. 2. Public relations -
Police - United States. I. Weisburd, David. II. Uchida, Craig D.
HV7936.C83P651993
363.2'0973 - dc20 92-45633
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© 1993 Springer-Verlag New York Inc.
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9 8 7 6 5 432 1
ISBN 978-1-4613-8314-7 ISBN 978-1-4613-8312-3 (eBook)
DOl 10.1007/978-1-4613-8312-3
Contents
Contributors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix
Part I Introduction
1. Raising Questions of Law and Order ............................... 3
David Weisburd and Craig Uchida with Lorraine Green
Part II The Development of Legal Control of the Police
2. Justice Without Trial ..... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 13
Jerome H. Skolnick
Law and Order: The Source of the Dilemma. . . . . . . . . . . . . . . . . . . . . . . .. 18
Conceptions and Applications: The Dilemma Complicated ............ 20
The Seclusion of Administration: The Dilemma's Setting. . . . . . . . . . . . .. 23
Law as an Enterprise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 25
Law Enforcement in Democratic Society . . . . . . . . . . . . . . . . . . . . . . . . . . .. 26
3. Historical Roots of the Legal Control of Police Behavior .... . . . . . . . . .. 32
Samuel Walker
The Prehistory of Legal Control: American Policing to 1960 ........... 34
The Watershed: From the Mid-1950s to the Mid-1960s ..... . . . . . . . . . .. 36
The Future of Legal Control: Alternative Scenarios. . . . . . . . . . . . . . . . . .. 45
The Conditions of Successful Legal Control. . . . . . . . . . . . . . . . . . . . . . . . .. 47
Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 52
Part III Changing Trends in Police Innovation:
Toward Community-Based Policies of Crime Control
4. Alternative Futures for Policing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 59
John E. Eck
v
vi Contents
Changes in Eolicing .............................................. 60
The Rise of Problem-Oriented Policing and Community Policing .. . . . .. 62
Consequences of Community Policing .............................. 65
Consequences of Problem-Oriented Policing. . . . . . . . . . . . . . . . . . . . . . . .. 68
Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 72
5. Community Policing and the Rule of Law .. . . . . . . . . . . . . . . . . . . . . . . . .. 80
Stephen D. Mastrofski and Jack R. Greene
Community Policing, Accountability, and Compliance ................ 81
A Community Policing Compatible With the Rule of Law ..... . . . . . . .. 83
The Risks of an Expanded Community Role. . . . . . . . . . . . . . . . . . . . . . . .. 93
Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 98
6. The Challenge of Reinventing Police and Community. . . . . . . . . . . . . . . .. 103
Michael E. Buerger
The Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 104
Problems of Community and Police Identity ......................... 111
Part IV Problems of Law, Order, and
Community in Comparative Context
7. The Soviet Police and the Rule of Law. . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 127
Louise Shelley
The Rule of Law: Comparative Perspectives . . . . . . . . . . . . . . . . . . . . . . . .. 129
Sources. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 132
History of Soviet Policing ...... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 132
The Structure of the Militsiia ...................................... 137
Style and Method of Operation .... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 138
Conclusion ...................................................... 143
8. Law Enforcement Innovation and the Rule of Law: Comparative and
Historical Perspectives. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 145
William F. McDonald
Comparative and Historical Perspectives ............................ 147
Community Policing: Progress or Regress ..... . . . . . . . . . . . . . . . . . . . . .. 152
Innovations in Prosecution .... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 162
Conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 165
Contents vii
Part V Crime Control and Police Control:
Future Trends and Problems
9. Why Crime Control is Not Reactionary ............................. 171
Lawrence W. Sherman
The Intellectual Assault on Crime Control. . . . . . . . . . . . . . . . . . . . . . . . . .. 172
Flaws in the Anti-Crime Control Literature. . . . . . . . . . . . . . . . . . . . . . . . .. 178
A New Model of Crime Control Values ............................. 184
10. Justice Without Trial Revisited 190
Jerome H. Skolnick
Drugs and Crime. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 190
Drugs and Procedural Justice. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 191
Police Professionalism and Bureaucratic Control ..................... 195
The Limits of Law Enforcement ................................... 199
Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 204
Author Index. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 207
Subject Index .................................................... 213
Contributors
Michael E. Buerger, Ph.D., Assistant Professor, Department of Public Affairs,
University of Wisconsin, Oshkosh, WI 54901, USA
John Eck, M.A., Associate Director, Police Executive Research Forum,
Washington, DC 20037, USA
Lorraine Green, Ph. D., Assistant Professor, Northeastern University, Boston,
MA 02115, USA; Senior Research Associate, Center for Crime Prevention
Studies, Rutgers University, Newark, NJ 07102, USA
Jack Greene, Ph.D., Professor, Center for Public Policy, Temple University,
Philadelphia, PA 19122, USA
Stephen Mastro/ski, Ph.D., Associate Professor, Administration of Justice,
Pennsylvania State University, University Park, PA 16802, USA
William McDonald, Ph.D., Associate Professor, Department of Sociology and
Institute of Criminal Law and Procedure, Georgetown University Law Center,
Washington, DC 20001, USA
Louise Shelley, Ph. D., Professor, Department of Justice, Law and Society, The
American University, Washington, DC 20016, USA
Lawrence Sherman, Ph.D., Professor, Department of Criminology and Criminal
Justice, University of Maryland, College Park, MD 20742, USA; President,
Crime Control Institute, Washington, DC 20007, USA
Jerome H. Skolnick, Ph.D., Claire Clements Dean's Professor of Law, University
of California at Berkeley, Berkeley, CA 94220, USA
Craig Uchida, Ph.D., Deputy Director, National Institute of Justice, Washington,
DC 20531, USA
ix
x Contributors
Samuel Walker, Ph.D., Professor, Department of Criminal Justice, University of
Nebraska at Omaha, Omaha, NE 68182, USA
David Weisburd, Ph.D., Director, Center for Crime Prevention Studies, Rutgers
University, Newark, NJ 07102, USA; Associate Professor, Institute of
Criminology, Hebrew University Law School, Jerusalem, Israel
Part I
Introduction
1
Raising Questions of Law and Order
DAVID WEISBURD and CRAIG UCHIDA with LORRAINE GREEN
The police in democratic society are required to maintain order and to do so
under the rule of law. As functionaries charged with maintaining order, they are
part of the bureaucracy. The ideology of democratic bureaucracy emphasizes
initiative rather than disciplined adherence to rules and regulations. By contrast,
the rule of law emphasizes the rights of individual citizens and constraints upon
the initiative of legal officials. This tension between the operational consequences
of ideas of order, efficiency, and initiative, on the one hand, and legality on
the other, constitutes the principle problem of police as a democratic legal
organization. (Skolnick, 1966:6)
In the 1960s Jerome Skolnick described the main problem of police in
democratic society as one of effectively maintaining order while adhering
to legal norms that emphasize constraint on the initiative of police auth
ority. Contrary to what was and continues to be a common theme in
American images of justice, that law and order are complementary,
Skolnick argued that one necessarily is in conflict with the other. To
emphasize the rule of law was to place the rights of citizens to be
free from undue interference of public officials above society'S right to
maintain order. To emphasize order was to place society's need to be free
from crime problems above the rights of individual citizens.
The problem that Skolnick raised was particularly important in the
decade in which he wrote. Although the police were not the cause of the
unrest of the 1960s, which clearly lay in problems of race and poverty
as well as opposition to the Vietnam War, they were often the flash point
around which violence would develop. For example, the Watts riots fol
lowed an arrest made by white officers. The police, who were caricatured
by students as "pigs," featured prominently in the violence surrounding
the 1968 Democratic National Convention in Chicago. The notion that
the police were "part of the problem" rather than the "solution" was not
an uncommon one two and a half decades ago (see Crawford, 1973;
Groves and Rossi, 1970; Lohman and Misner, 1966; National Advisory
Commission on Civil Disorders, 1968; President's Commission on Law
Enforcement and Administration of Criminal Justice, 1967a, 1967b).
3
