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Community Policing
and Peacekeeping
Advances in Police Theor y and Pra ctice Ser ies
Series Editor: Dilip K. Das

Policing Organized Crime: Intelligence Strategy Implementation

Petter Gottshcalk

Security in Post-Conflict Africa: The Role of Nonstate Policing

Bruce Baker

Community Policing and Peacekeeping

Peter Grabosky

Community Policing: International Patterns and Comparative Perspectives

Dominique Wisler and Ihekwoaba D. Onwudiwe

Police Corruption: Preventing Misconduct and Maintaining Integrity

Tim Prenzler
Community Policing
and Peacekeeping
Edited by
Peter Grabosky
with the assistance of Christine Nam

Boca Raton London New York

CRC Press is an imprint of the

Taylor & Francis Group, an informa business
Cover photo courtesy of David Hegarty, 2001 leader of the International Peace Monitoring Team in the Solo-
mon Islands. The community policing of weapons disposal in the Solomon Islands.

CRC Press
Taylor & Francis Group
6000 Broken Sound Parkway NW, Suite 300
Boca Raton, FL 33487-2742

© 2009 by Taylor and Francis Group, LLC

CRC Press is an imprint of Taylor & Francis Group, an Informa business

No claim to original U.S. Government works

Printed in the United States of America on acid-free paper

10 9 8 7 6 5 4 3 2 1

International Standard Book Number: 978-1-4200-9973-7 (Hardback)

This book contains information obtained from authentic and highly regarded sources. Reasonable efforts
have been made to publish reliable data and information, but the author and publisher cannot assume
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have attempted to trace the copyright holders of all material reproduced in this publication and apologize to
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Library of Congress Cataloging‑in‑Publication Data

Community policing and peacekeeping / Peter Grabosky, editor.

p. cm. -- (Advances in police theory and practice series)
Includes bibliographical references and index.
ISBN 978-1-4200-9973-7 (hardcover : alk. paper)
1. Community policing. 2. Police-community relations. 3. Peacekeeping forces. I.
Grabosky, Peter N., 1945- II. Title.

HV7936.C83C6633 2009
363.2’3--dc22 2009016172

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Table of Contents

Series Preface ix
Preface xi
The Editor xiii
Contributors xv

1 Community Policing, East and West,

North and South 1
Peter Grabosky

2 Seeing Like a Citizen: Field Experiments

in Community Intelligence-Led Policing 13
Martin Innes, Laurence Abbott,
Trudy Lowe, and Colin Roberts

3 Democratic Policing 33
Peter Grabosky

4 Community Policing Without the Police?

The Limits of Order Maintenance
by the Community 55
David Thacher

5 The Small-Scale Initiative: The Rhetoric and the

Reality of Community Policing in Australia 71
Jenny Fleming and Juani O’Reilly

6 Community Policing and Accountability 81

Steve Herbert

7 Police–Social Service Collaboration:

Creating Effective Partnerships 95
Liliokanaio Peaslee

v
vi Table of Contents

8 Embedding Partnership Policing: What We’ve

Learned From the Nexus Policing Project 117
Jennifer Wood and David Bradley

9 Serious Gun Violence in San Francisco:

Developing a Partnership-Based Violence
Prevention Strategy 133
Anthony A. Braga, David Onek, and
Tracey Meares

10 A Thin or Thick Blue Line? Exploring

Alternative Models for Community
Policing and the Police Role in South Africa 153
Monique Marks, Clifford Shearing, and
Jennifer Wood

11 Community Policing in China:

A New Era of Mass Line Policing 169
Lena Y. Zhong

12 The Effect of Community Policing on Chinese

Organized Crime: The Hong Kong Case 187
Lee King Wa

13 Police Development: Confounding Challenges

for the International Community 201
Tony Murney and John McFarlane

14 Policing Peace: Evolving Police Roles

in UN Peace Operations 231
B. K. Greener

15 “It Wasn’t Like Normal Policing”:

Voices of Australian Police Peacekeepers
in Operation Serene, Timor-Leste, 2006 249
Andrew Goldsmith
Table of Contents vii

16 What Happens Before and After:

The Organizational and Human Resources
Challenges of Deploying Canadian Police
Peacekeepers Abroad 267
Benoît Dupont and Samuel Tanner

17 Policing Business Confidence?

Controlling Crime Victimization in Papua
New Guinea 287
Mark Findlay

18 Police Capacity Development in the Pacific:

The Challenge of the Local Context 307
Abby McLeod

19 Reinventing Policing Through the Prism

of the Colonial Kiap 325
Sinclair Dinnen and John Braithwaite

20 Policing in Cambodia:
Legitimacy in the Making? 341
Roderic Broadhurst and Thierry Bouhours

Index 361
Series Preface

While the literature on police and allied subjects is growing exponentially, its
impact upon day-to-day policing remains small. The two worlds of research
and practice of policing remain disconnected even though cooperation
between the two is growing. A major reason is that the two groups speak in
different languages. The research work is published in hard-to-access journals
and presented in a manner that is difficult to comprehend for a lay person.
On the other hand, the police practitioners tend not to mix with researchers
and remain secretive about their work. Consequently, there is little dialogue
between the two and almost no attempt to learn from one another. Dialogue
across the globe, amongst researchers and practitioners situated in different
continents, is, of course, even more limited.
I attempted to address this problem by starting the IPES, www.ipes.info,
where a common platform has brought the two together. IPES is now in its
15th year. The annual meetings, which constitute most major annual events
of the organization, have been hosted in all parts of the world. Several pub-
lications have come out of these deliberations and a new collaborative com-
munity of scholars and police officers has been created whose membership
runs into several hundreds.
Another attempt was to begin a new journal, aptly called Police Practice
and Research: An International Journal (PPR), which has opened the gate to
practitioners to share their work and experiences. The journal has attempted
to focus upon issues that help bring the two on a single platform. PPR is com-
pleting its 10th year in 2009. It is certainly evidence of growing collaboration
between police research and practice that PPR, which began with 4 issues a year,
expanded to 5 issues in its fourth year and now, it is issued 6 times a year.
Clearly, these attempts, despite their successes, remain limited.
Conferences and journal publications do help create a body of knowledge
and an association of police activists but cannot address substantial issues
in depth. The limitations of time and space preclude larger discussions and
more authoritative expositions that can provide stronger and broader link-
ages between the two worlds.
It is this realization of the increasing dialogue between police research and
practice that has encouraged many of us — my close colleagues and I con-
nected closely with IPES and PPR across the world — to conceive and imple-
ment a new attempt in this direction. I am now embarking on a book series,
Advances in Police Theory and Practice, which seeks to attract writers from all
ix
x Series Preface

parts of the world. Further, the attempt is to find practitioner contributors. The
objective is to make the series a serious contribution to our knowledge of the
police as well as to improve police practices. The focus is not only in work that
describes the best and successful police practices but also one that challenges
current paradigms and breaks new ground to prepare police for the twenty-first
century. The series seeks comparative analysis that highlights achievements in
distant parts of the world as well as one that encourages an in-depth examina-
tion of specific problems confronting a particular police force.
This ever-increasing search is illustrated by Peter Grabosky’s Community
Policing and Peacekeeping, which comprises a collection of essays focusing on
two themes central to policing in the twenty-first century — developments in
contemporary community policing and peacekeeping. It will make a valuable
contribution to the literature on police partnerships with civil society and
with other government agencies in western democratic societies. It provides
comparative perspectives from China, South Africa, and Papua New Guinea.
The book will also break important ground in the emerging field of police as
peacekeepers — the delivery of policing services in weak and failing states
and in post-conflict situations. This is particularly significant given the fra-
gility of many states in the developing world, and the increasing demand for
policing assistance. The collection contains contributions from world class
scholars, including Anthony Braga, Harvard University; John Braithwaite,
Australian National University; Martin Innes, Cardiff University; Tracey
Meares, Yale University; David Thacher, University of Michigan; and Clifford
Shearing, University of Cape Town. Among the book’s many insights is the
importance of cultural and political contexts in the delivery of police work,
whether in advanced industrial societies or in poorer countries.
It is hoped that through this series it will be possible to accelerate the pro-
cess of building knowledge about policing and help bridge the gap between
the two worlds — the world of police research and police practice. This is an
invitation to police scholars and practitioners across the world to come and
join in this venture.
Dilip K. Das Ph.D.
Founding President,
International Police Executive Symposium, IPES, www.ipes.info
Founding Editor-in-Chief, Police Practice and Research:
An International Journal, PPR, www.tandf.co.uk/journals
Preface

This collection brings together two important themes in contemporary polic-

ing: community policing and peacekeeping. The two are not unrelated. Some
(but not all) peacekeeping missions will entail elements of community polic-
ing. And wherever they are attempted, both community policing and peace-
keeping are more easily said than done. To be accomplished properly, each
entails considerable expense and requires extraordinary attention to local
context and culture.
The significance of these themes is underscored by two contemporary
trends that show no signs of abating. In modern industrial societies, the
demand for policing services far exceeds the current and foreseeable avail-
ability of public policing resources. One needs look no further than the bur-
geoning private security industry for evidence of this. Consequently, public
police must seek to engage with other institutions of civil society in order
to get the most out of their own limited capacities. Community policing,
despite its cost, is one way of doing this.
The second major theme is the weakening of states in many parts of
the developing world. The inability of some states to provide a basic level
of security for their citizens may bring about a request for law enforcement
assistance; in extreme cases, it may instigate humanitarian intervention. Of
course, donor nations may have their own geopolitical or economic reasons
for embarking on peacekeeping missions. Whatever the case, the setting for
peacekeeping may vary from modest development assistance to outright civil
war. How police should deal with these different contingencies is beginning
to receive important scholarly attention.
Sincere thanks are due to all the contributors to this volume for their
exemplary cooperation throughout the life of the project. The superb edito-
rial assistance of Christine Nam is gratefully acknowledged, as is the sup-
port of the Australian Research Council (LP0346987), the Australian Federal
Police (ACT Policing), and the ARC Centre of Excellence in Policing and
Security. Thanks are also due to the Regulatory Institutions Network of the
Australian National University and the Berkeley Center for Criminal Justice

xi
xii Preface

for their institutional support, the editors at CRC Press for their guidance,
and Professor Dilip Das for proposing this contribution to his series.

Peter Grabosky

Australian Research Council Centre of Excellence in Policing and Security

Regulatory Institutions Network
Research School of Paciἀc and Asian Studies
Australian National University
Canberra
The Editor

Peter Grabosky is a professor in the Regulatory

Institutions Network, Research School of Pacific
and Asian Studies, Australian National University,
and is Deputy Director of the Australian Research
Council Centre of Excellence in Policing and
Security. He holds a PhD in political science from
Northwestern University, and has written exten-
sively on criminal justice and public policy. He
is a Fellow of the Academy of the Social Sciences
in Australia, and was the 2006 winner of the
Sellin-Glueck Award of the American Society of
Criminology for contributions to comparative
and international criminology.

xiii
Contributors

Laurence Abbott Rod Broadhurst

Universities’ Police Science Institute ARC Centre of Excellence in Policing and
Cardiff University School of Social Sciences Security
Cardiff, United Kingdom Regulatory Institutions Network
Email: [email protected] Research School of Pacific and Asian
Studies
ἀ ierry Bouhours Australian National University
Faculty of Law Canberra, Australia
Queensland University of Technology Email: [email protected]
Brisbane, Australia
Email: [email protected]
Sinclair Dinnen
David Bradley SSGM Program
Victoria Police College of Asia and the Pacific
Melbourne, Australia Australian National University
and Canberra, Australia
Adjunct Professor Email: [email protected]
Department of Psychology and Social
Sciences
Edith Cowan University
Joondalup, Australia
Benoît Dupont
International Centre for Comparative
Email: [email protected]
Criminology
University of Montreal
Anthony A. Braga
Montreal, Quebec, Canada
Program in Criminal Justice Policy and
Email: [email protected]
Management
Kennedy School of Government
Harvard University
Cambridge, Massachusetts Mark Findlay
and Law Faculty
Berkeley Center for Criminal Justice University of Sydney
School of Law Sydney, Australia
University of California, Berkeley Email: [email protected]
Berkeley, California
Email: [email protected]
Jenny Fleming
John Braithwaite Tasmanian Institute of Law Enforcement
Regulatory Institutions Network Studies
Australian National University University of Tasmania
Canberra, Australia Hobart, Australia
Email: [email protected] Email: [email protected]

xv
xvi Contributors

Andrew Goldsmith John McFarlane

Law and Criminal Justice Strategic and Defence Studies Centre
Flinders University Australian National University
Adelaide, Australia and
and School of Humanities and Social Sciences
Centre for Transnational Crime Prevention University of New South Wales
University of Wollongong Australian Defence Force Academy
Belair, SA Canberra, Australia
Email: [email protected] Email: [email protected]

Peter Grabosky Abby McLeod

ARC Centre of Excellence in Policing and Australian Federal Police
Security International Deployment Group
Regulatory Institutions Network Canberra, Australia
Research School of Pacific and Asian Email: [email protected]
Studies
Australian National University
Canberra, Australia Tracey Meares
Email: [email protected] Yale Law School
New Haven, Connecticut
B. K. Greener and
International Relations Berkeley Center for Criminal Justice
Massey University School of Law
Palmerston North, New Zealand University of California, Berkeley
Email: [email protected] Berkeley, California
Email: [email protected]
Steve Herbert
Department of Geography/Law, Societies Tony Murney
and Justice Program Austrailian Federal Police
University of Washington Canberra, Australia
Seattle, Washington Email: [email protected]
Email: [email protected]
David Onek
Martin Innes Berkeley Center for Criminal Justice
Universities’ Police Science Institute School of Law
Cardiff University School of Social Sciences University of California, Berkeley
Cardiff, United Kingdom Berkeley, California
Email: [email protected] Email: [email protected]

Trudy Lowe
Universities’ Police Science Institute Juani O’Reilly
Cardiff University School of Social Sciences Policy and Future Strategies
Cardiff, United Kingdom Australian Federal Police
Email: [email protected] Canberra, Australia
Email: juani.o’[email protected]
Monique Marks
Sociology Programme Liliokanaio Peaslee
University of KwaZulu-Natal Department of Political Science
Howard College James Madison University
Durban, South Africa Harrisonburg, Virginia
Email: [email protected] Email: [email protected]
Contributors xvii

Colin Roberts David ἀ acher

Universities’ Police Science Institute Public Policy and Urban Planning
Cardiff University School of Social University of Michigan
Sciences Ann Arbor, Michigan
Cardiff, United Kingdom Email: [email protected]
Email: [email protected]

Clifford Shearing Lee King Wa

Faculty of Law Department of Sociology
Centre of Criminology University of Hong Kong
Durban, South Africa Shatin, Hong Kong
Email: [email protected] Email: [email protected]

Samuel Tanner
International Centre for Comparative Jennifer Wood
Criminology Department of Criminal Justice
University of Montreal Temple University
Montreal, Quebec, Canada Philadelphia, Pennsylvania
Email: [email protected] Email: [email protected]

Lena Y. Zhong
Department of Applied Social Studies
City University of Hong Kong
Kowloon, Hong Kong
Email: [email protected]
Community Policing,
East and West,
North and South 1
Peter Grabosky

Contents
Part 1: Community Policing in Democratic Societies 1
Part 2: Police as International Peacekeepers 6
References 11

Part 1: Community Policing in Democratic Societies

The term community policing has become something like motherhood. It has
a wonderful connotation. Who could be against it? Indeed, there are prob-
ably not too many police executives in the Western world who would admit
that they are not practicing community policing. Those who do make such
admissions have probably succumbed to the imperatives of innovation and
refer to what they are now doing as a “higher form” of community policing.
Of course, the term community policing means many things to many
people. The dominant paradigm of policing today is community policing,
which combines consultation with community members, responsiveness to
their security needs, collective problem solving to identify the most appropri-
ate means of meeting these needs, and mobilization of the public to make all
this happen (Bayley, 2006). Although the virtues of community policing are
widely extolled (at least in Western democracies), it is not always practiced;
even more rarely is it done well.
Ideally, police should be able to anticipate what the community’s secu-
rity preferences are, that is, what they, the public, are looking for. Equipped
with comprehensive criminal statutes and an implicit understanding of
what “respectable” people wanted from their police, law enforcement offi-
cers simply did what came naturally. Unfortunately, police understanding
of citizens’ expectations has not always kept pace with citizen preferences.
In English-speaking democracies of a half-century ago, conservative, mas-
culine, homophobic, and racist attitudes tended to be overrepresented in the
ranks of police. Violence against women was traditionally regarded as pri-
vate, and “not a police matter.” It took concerted effort on the part of the

Adapted from Grabosky, P. Community policing: East and West, North and South. Police
Practice and Research, 10(2), forthcoming and Grabosky, P. Police as international peace-
keepers. Policing and Society, 19(10), forthcoming.

1
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