The Reconstitution of Law in Local Settings: Agency Discretion, Ambiguity, and a Surplus of Law in the Policing of Hate Crime

An important yet poorly understood function of law enforcement organizations is the role they play in distilling and transmitting the meaning of legal rules to frontline law enforcement officers and their local communities. In this study, we examine how police and sheriff's agencies in California collectively make sense of state hate crime laws. To do so, we gathered formal policy documents called “hate crime general orders” from all 397 police and sheriff's departments in the state and conducted interviews with law enforcement officials to determine the aggregate patterns of local agencies' responses to higher law. We also construct a “genealogy of law” to locate the sources of the definitions of hate crime used in agency policies. Despite a common set of state criminal laws, we find significant variation in how hate crime is defined in these documents, which we attribute to the discretion local law enforcement agencies possess, the ambiguity of law, and the surplus of legal definitions of hate crime available in the larger environment to which law enforcement must respond. Some law enforcement agencies take their cue from other agencies, some follow statewide guidelines, and others are oriented toward gaining legitimacy from national professional bodies or groups within their own community. The social mechanisms that produce the observed clustering patterns in terms of approach to hate crime law are mimetic (copying another department), normative (driven by professional standards about training and community social movement pressure), and actuarial (affected by the demands of the crime data collection system). Together these findings paint a picture of policing organizations as mediators between law‐on‐the‐books and law‐in‐action that are embedded in interorganizational networks with other departments, state and federal agencies, professional bodies, national social movement organizations, and local community groups. The implications of an interorganizational field perspective on law enforcement and implementation are discussed in relation to existing sociolegal research on policing, regulation, and recent neo‐institutional scholarship on law.     

Deadly Words: State Power and the Entanglement of Speech and Violence in Hate Crime

Any analysis of hate crime that attempts to separate speech from action, language from violence, faces epistemological difficulties that limit the range of conversations about laws responding to identity-based injury in the United States. Active debates have raged over the implications of bias crime sentence enhancement laws for the protection of ‘freespeech’, thus addressing the inextricability of language and meaning from hate crime. Those in favor of legal responses to identity-based injury tend toward essentialist claims which assume the stability of identity and of meanings inherent in words or actions. Those opposed assert the impossibility of codifying the meaning of words or actions in the law, and/or they worry about the reification of (victimized) identities accompanying bias crime statutes. This article argues that the focus on language and speech in these debates simultaneously enables an evasion of discussion about the law's response to bias-related violence, and misleadingly assumes too much stability in the functions of law and the nature of state power. Interviews conducted by the author with individuals involved in a 1992 racist hate crime are used to show the diverse elements of state power suffusing the incident and its aftermath. An analysis of the crime's investigation and prosecution under a Maryland hate crime statute suggests that law enforcement officers are primarily using hate crime laws as public relations tools in a fight against community perceptions that they are themselves bigots. This revised version was published online in July 2006 with corrections to the Cover Date.     

To protect and collect: a nationwide study of profit-motivated police crime

This study is part of a larger research project on police crime in the United States. Police crimes are those criminal offenses committed by sworn law enforcement officers who have the general powers of arrest. Profit-motivated police crime involves officers who use their authority of position to engage in crime for personal gain. This study reports the findings on 1,591 cases where a law enforcement officer was arrested for one or more profit-motivated crimes during the seven-year period 2005–2011. The profit-motivated arrest cases involved 1,396 individual officers employed by 782 state, local, special, constable, and tribal law enforcement agencies located in 531 counties and independent cities in 47 states and the District of Columbia. Our data is the first systematic study of profit-motivated police crime. The study describes the nature of this form of police misconduct in terms of several dimensions, including the characteristics of police who perpetrate these crimes, where it occurs, the specific criminal charges, and the contexts within which profit-motivated police crime is punished through police agencies and the criminal courts.     

New laws but few cases: understanding the challenges to the investigation and prosecution of human trafficking cases

All fifty states and the federal government have passed laws to combat human trafficking, but we know little about their effectiveness. Using data from investigative case records and court files for 140 human trafficking cases in 12 U.S. counties and qualitative interviews with law enforcement, prosecutors, and victim service providers, we examined the characteristics of and challenges to investigation and prosecution of human trafficking cases under new state and federal laws. We found that few human trafficking cases are identified by local law enforcement, most cases forwarded to state prosecution are sex trafficking cases involving U.S. citizens, and state prosecutors overwhelmingly charge human trafficking offenders with other, lesser crimes. The legal, institutional, and attitudinal challenges that constrain prosecution of human trafficking are similar across study sites despite varying types of state antitrafficking legislation. Study results suggest prosecution of human trafficking cases is challenging. If new laws are to be effective, then local law enforcement and prosecutors should work collaboratively and adopt proactive human trafficking investigative strategies to identify both labor and sex trafficking cases. There is social benefit to holding traffickers accountable, but more emphasis should be placed on policies that identify and serve victims.     

Construction of the problem of Latin gangs in Spain and response of the law enforcement system

Recently, since their official recognition as criminal organizations by Spanish law enforcement authorities, stricter prosecution of Latin street gangs has been observed. The toughening of legal regulations, new models of police conduct and the increasingly active role of prosecutors have contributed to greater punitive pressure on the gangs. This article has two main objectives: first, to describe changes in Spanish criminal policies for the treatment of Latin American street gangs; second, to analyse to what extent these changes are in consonance with empirical findings on criminal involvement and the organizational nature of these groups. The results show that despite the recent increase in criminal activity these groups cannot be viewed as the only parties to blame for local street crime. The opinion of the law enforcement authorities that Latin American street gangs are a form of organized crime is far from reality. These groups do not have the required combination of characteristics inherent to criminal organizations, and their purposes are not always exclusively criminal.     

The Context of Minority Group Threat: Race, Institutions, and Complying with Hate Crime Law

A wealth of research suggests a direct association between minority group size and government social control, such as arrest or imprisonment rates. Prior work in this vein, however, gives scant attention to (1) types of law that explicitly address intergroup conflict and (2) regional variation in the salience of minority group threat. At the same time, research on organizational responses to law indicates that institutional linkages to legal environments dictate policy innovation and compliance, yet the relevance of such linkages for law enforcement agencies is less clear. The present research investigates these themes by focusing on law enforcement responses to hate crime in the United States. Data from a sample of large municipal and county policing agencies and their degree of compliance with the federal Hate Crimes Statistics Act are analyzed. Main effects models show that compliance with federal hate crime law is less likely in places with larger black populations, an intriguing finding in light of extant work suggesting that both formal social control and race-based hate crime offending are typically more prevalent where more blacks reside. This effect of black population size on compliance with hate crime law, however, is contingent on region. A positive correlation in the Northeast contrasts with an inverse association in the South. The findings also suggest that organizational facets of law enforcement agencies, notably their engagement in community policing, are associated with compliance. The results elaborate and qualify group threat explanations of government social control and contribute to a burgeoning literature on the utility of organizational theory in the realm of law enforcement.     

Neonaticide: A Comprehensive Review of Investigative and Pathologic Aspects of 55 Cases

Analysis of neonaticide cases from a law enforcement perspective is virtually non-existent in the research literature. Nonetheless, law enforcement and prosecutors face unique challenges when investigating and prosecuting neonaticide; and a specialized, informed approach is necessary. By highlighting the crime scene characteristics and autopsy findings of 55 neonaticide victims, the authors hope to assist the law enforcement and legal communities in their neonaticide investigations. Specifically, this article clarifies how neonaticide occurs by chronologically examining the pregnancy, the birth and death of the infant, the subsequent crime scene (or scenes) and the pathological findings. The article also highlights the potential challenges that may arise during investigation and prosecution of these cases in addition to providing the forensic community with recommended investigative techniques.     

Sense-making and secondary victimization among unsolved homicide co-victims

Sense-making is a form of meaning-making that focuses on understanding loss which then contributes to identity reconstruction. This qualitative study examines how perceived communication with the criminal justice system can inhibit sense-making among unsolved homicide co-victims. One-time intensive interviews were conducted with 37 co-victims about their interactions with police and prosecutors. A grounded theory approach suggest that co-victims held negative views of the police and prosecutors because they perceived them as inhibiting their ability to adequately locate information needed to understand the crime and achieve justice. Results also suggest that race and ethnicity play a role in reducing sense-making because constructions of meaning were based on perceptions of discrimination. In the end, the intense desire for information, resolution, and justice led several co-victims to investigate their loved one's murder. Policies that law enforcement should adopt to promote better communication with co-victims and facilitate sense-making are examined.     

EULEX and the fight against organised crime in Kosovo: what’s the record?

Staffed by international police officers, prosecutors and judges, EULEX was mandated to strengthen Kosovo’s domestic rule-of-law institutions and endowed with executive authority to ensure that high-level criminal cases, including organised crime, are properly investigated and prosecuted. Yet, after more than nine years of operation, EULEX has proven largely ineffective in using its executive authority to counter organised crime and its capacity-building efforts have not led to significant local improvements in this area. Insufficient framework conditions shaped by years of impunity for politico-criminal power structures prevent capacity-building efforts from taking effect as local rule-of-law institutions remain hesitant and timid to investigate and prosecute high-level criminals. It is argued that EULEX’s own conduct and weak executive performance has severely undermined the mission’s efforts to strengthen local law enforcement through capacity-building.     

Silencing Women's Voices: Nuisance Property Laws and Battered Women

There is little documentation about how nuisance property laws, which fine people for excessive 911 calls, affect victims of domestic violence. In St. Louis, we found that police and prosecutors believe that the law benefits victims of domestic violence by providing them with additional services. By contrast, advocates for domestic violence victims believe that the law undermines battered women's access to housing and discourages them from calling 911. Using qualitative data, we analyze how the organizational structures and dynamics within which each group works give rise to different stocks of working knowledge. We conclude that law enforcement officials are unaware of these harms because women's voices and experiences are marginalized during the enforcement process. This research reveals mechanisms through which law enforcement policies reinforce gender inequality, and illustrates some ways in which gender relations and power come into play in what, on their surface, appear to be gender‐neutral laws.     

Religious Motivated Hate Crimes: Reporting to Law Enforcement and Case Outcomes

Relative to non-bias motivated crimes, hate crimes have much graver consequences for victims and their community. Despite the large increase in religious hate crimes over the past decade relative to all other hate crime, little is known about these types of crimes and the factors associated with both reporting to law enforcement and case outcomes. Utilizing the National Crime Victimization Survey and National Incident-Based Reporting System datasets, this study examines the relationship between victim, offender, and incident characteristics on reporting to law enforcement and case outcomes. Most religious hate crimes are not reported (41.3 %) in part due to perceptions of law enforcement’s perceived response. Of the violent incidents that are reported, the vast majority do not result in the arrest of an offender (22.2 %). Whereas only a small number of variables related to the seriousness of the offense are associated with both reporting and arrest, these exhibited large effect sizes.     

Community prosecution tenets and practices: The relative mix of “community” and “prosecution”

Community prosecution encourage prosecutors to collaborate with constituents to mutually determine solutions to community problems. However, the potential exists for prosecutors to continue seeking their traditional goals of maximizing convictions while nominally working within a community-prosecution framework. A random survey of 261 Georgia prosecutors helps to determine whether community-based prosecutors spend more time in community outreach and law enforcement coordination activities. The results show that attorney caseload measures correlate with time spent on community outreach and law enforcement. Being assigned to community prosecution or a specialized crime unit is not consistently related either of these activities. In short, consistent differences do not emerge between community-based and traditional prosecutors.     

Taking advantage of new technologies: For and against crime

Advancement in the field of Information Communication Technologies (ICTs) changes not only our society but also crime. It opens more opportunities for crime and draws people into committing crime, leading to an unprecedented growth in the crime rate. On the other hand, it has also been applied to criminal justice. Crime fighters use the ICTs to control crime and gain efficiency in their policing efforts to service the community. This has led to more effective police work. As both criminals and police benefit from ICTs, these new technologies create new pitfalls for both criminals and law enforcement. Use of technologies by criminals represents challenges and risks to the crime fighter and vice versa. This triggers a crime race and raises notable social concerns on the adverse use and potential abuse of ICTs. Proactive territorial-based regulations, although called for, do not always provide solutions. The borderless nature of ICTs may not allow for rigid regulations and instead challenges the principle of criminal laws. As such, international laws and regulations combined with reliance on technologies are crucial to counter the crime race.     

Attitudes toward hate crime laws

The research reported here was a survey study exploring attitudes toward hate crime laws and possible causes of such attitudes. In a path model, which was supported by the data, it was found that the major factor determining acceptance or rejection of a hate crime law was whether or not homosexuals would be included as a protected group: those wanting inclusion supporting such a law, and those not wanting inclusion opposing such a law. Consistent with identity politics theory, the data-supported model further found that both social and economic liberals, and people who thought hate crimes created fear in other members of the victim's group, wanted homosexuals included in hate crime laws. Other findings, however, were inconsistent with the identity politics theory position that this movement was a united front. Other results from the data-supported model are also discussed and explanations are provided.     

Tennessee Citizen Police Academies: Program and Participant Characteristics

Citizen police academies (CPAs) are popular programs developed by police departments with the twin goals of educating the public about law enforcement and improving police-community relationships. Citizen police academies can help law enforcement agencies by providing them with graduates who may support police departments through volunteering, crime reporting, advocacy, and crime prevention. CPAs may aid citizens by providing them with opportunities to work with the police to make their communities safer. During the course of the citizen police academy, not only will participants have opportunities to learn more about the police depar'tment and their communities, but they may be given opportunities to patrol with police officers, solve mock crime scenes, or attend moot court. This study examines citizen police academies in Tennessee and provides an exploratory investigation of the programs and its participants. Data obtained from 31 police departments indicate CPA programs with more than a 20 year history in Tennessee. Results of a pretest and posttest of 4 citizen police academies’ participants found that attending these programs significantly and positively changed participants’ familiarity with the police chief, local law enforcement, community crime, and the criminal justice system.     

Civil Asset Forfeiture Laws and Equitable Sharing Activity by the Police

Research Summary

For several decades, critics have argued that civil forfeiture laws create incentives for law enforcement to increase departmental revenue by “policing for profit.” By using data on federal equitable sharing payments to nearly 600 local law enforcement agencies between 2000 and 2012, we examine the relationship between the characteristics of state forfeiture laws and equitable sharing payments to local agencies. Our results indicate that agencies in states with state laws that are more restrictive or less rewarding to police collect more in federal equitable sharing. This finding supports the critics’ argument that police behavior in regard to forfeiture activities is influenced by the financial rewards and burdens involved.

Policy Implications

Our results reveal that the findings of investigative journalism and case study research, that is, that police forfeiture activities are influenced by financial rewards, may be more generalizable to law enforcement than previously thought. Despite recent state‐level reforms, federal equitable sharing and most state forfeiture laws provide limited due process protections and have minimal accountability or reporting requirements. Concerns about the impact of civil forfeiture practices on perceptions of procedural justice and police legitimacy are discussed, and possible policy reforms are reviewed.     

‘Inappropriate but not crime’? Policing racial hatred in Sweden

ABSTRACT

Racial bias afflicts police practices across the globe. Police discrimination against and mistreatment of racial and ethnic minorities is indeed difficult to underestimate. While much attention has been thus paid to racially biased policing, fewer studies examine the question from the reverse angle, namely how the police themselves combat racist offences. This article offers empirical insights into the policing of racial hatred in Sweden, a relevant yet relatively understudied case. Drawing on interviews with police officers and crime investigators, I discuss law enforcement perspectives, e.g. perceptions and reasoning in relation to the investigation of racist offences. Findings evince a rather narrow approach as regards the constructions of racist motive that involves a relatively restricted use of bias labelling in identifying hate incidents, especially when the boundaries of racial hostility are perceived as blurred. I argue that while such an approach may reflect a legitimate effort to demonstrate the existence of a motive behind an offence, it may also lead to an underestimation of more mundane forms of racism and their harms inflicted upon racialized individuals and communities. The results have implications for ‘recognition’ and ‘belonging’ as benchmarks of democratic policing, and ‘the promise of inclusion’ associated with combatting hate crimes.     

Confidently Wrong: Police Endorsement of Psycho-Legal Misconceptions

Public beliefs about psychological issues relevant to the legal system have been demonstrated to often be misconceived, but the endorsement of such beliefs in law enforcement samples is largely unknown. This study was the first to compare psycho-legal beliefs between law enforcement officers and the general public in the UK. Participants were presented a 50-item questionnaire measuring five psycho-legal topics; police procedures, courts, tough on crime, mental illness, and memory and cognition. Despite direct involvement and relevant experience, law enforcement officers endorsed just as many empirically contradictory beliefs as those who were not law enforcement officers. Further, law enforcement officers were more confident in their responses. This research has implications for identifying areas of limited knowledge within police samples that can be targeted by police education.     

Nigeria

Conclusion Organized crime activities flourish in Nigeria because law enforcement is weak or nonexistent at all levels. The police were corrupt even before organized crime emerged in its present form in Nigeria. Since “corruption is necessary for the successful operation of organized crime,”⁹⁴ the structure and operation of the Nigerian police, together with the activities of corrupt heads of state and corrupt politicians, made Nigeria fertile ground for organized crime. When those who make the laws and those who enforce the law are shamelessly corrupt, then the entire society is cor-rupted. These leaders are supposed to be the role models of the younger generations in Nigeria. Instead, they represent what Gresham Sykes and David Matza have termed the “appeal to higher loyalty”—a technique for rationalization of wrongs by under-privileged elements of Nigerian society who willingly engage in criminal activity.     

论基层警察行政执法行为的外部控制及其反思

本文认为,对行政执法行为的控制途径有两种方式：内部控制和外部控制.以法律法规、组织制度、组织结构等外部控制方法对基层警察行政执法行为进行管理存在许多不足之处,同时还易造成警察执法自主性的流失.所以,应培养基层警察行政执法的自主性,以形成基层警察行政执法行为内部控制和外部控制两个向度的合力.