Table Of ContentChanging the Guard:
Developing Democratic
Police Abroad
David H. Bayley
OXFORD UNIVERSITY PRESS
Changing the Guard
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Changing the Guard: Developing Democratic Police Abroad
David H. Bayley
David H. Bayley
Changing the Guard
Developing Democratic Police Abroad
3
3
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Library of Congress Cataloging-in-Publication Data
Bayley, David H.
Changing the guard : developing democratic police abroad / by David H. Bayley.
p. cm. — (Studies in crime and public policy)
ISBN- ----
ISBN ---
. Police—International cooperation. . Police—Developing countries.
. Technical assistance, American. . Technical assistance—Developing countries.
. Democratization. . Law reform. I. Title. II. Series.
HV.B
.''—dc
Printed in the United States of America
on acid-free paper
Preface
T
his book examines the policies and practices involved in assisting
countries to develop democratic policing. It is a “how-to” book,
pinpointing the lessons that have been learned about both the sub-
stance and practice of providing assistance to the police and, more
largely, the justice sector.
Th is book brings together the two major interests of my profes-
sional life: the study of strategic change within police organizations
and the comparison of international policing practices. Research
for this project began in with an exhaustive survey of writing
about domestic and international experience with facilitating insti-
tutional change in police agencies. Supported by the National Insti-
tute of Justice (NIJ), U.S. Department of Justice, I created a team
composed of two graduate students and myself to collect writing
about the process of changing police institutions. As an NIJ Fel-
low, I also spent two months in Washington, DC, discussing assis-
tance issues with government policy makers and fi eld personnel who
vi Preface
had returned from overseas missions. Th is research culminated in
the publication of Democratizing the Police Abroad: What To Do and
How To Do It ().
During –, I visited four countries to explore the prob-
lems of applying the lessons of assistance in real-world settings. Th e
countries were El Salvador (), Bosnia-Herzegovina (),
South Africa (), and Ukraine (). Since it was impossible to
construct a scientifi cally valid random sample of countries to which
the United States was giving police assistance, I choose countries that
illustrated diff erences in context: El Salvador—Latin America, pre-
dominantly bilateral assistance, third-world conditions, negotiated
transition to democracy; Bosnia-Herzegovina—Europe, multilat-
eral assistance, relatively sophisticated infrastructure, peacekeeping
intervention; South Africa—sub-Saharan Africa, multiple donors
both bi- and multilateral, sophisticated infrastructure coupled with
deep socioeconomic cleavages, negotiated transition to democracy;
Ukraine—former Soviet Union, multiple bilateral programs, peace-
ful transition from Communism. In each country I interviewed local
and foreign personnel involved in assistance projects. During this
period I also visited other countries that have been major providers
of police assistance (Australia, Canada, Germany, Japan, Norway,
Sweden, and the United Kingdom) to assess the extent and nature of
their programs and to discuss the process of assistance as they have
experienced it.
Support for most of this fi eld research was provided by the
John D. and Catherine T. MacArthur Foundation. I am enormously
grateful for their interest in the topic and their understanding of the
peculiarities of policy research. Th e U.S. Institute of Peace, Wash-
ington, DC, provided fi nancial support for the research in Ukraine,
as well as brief visits to donor and training agencies in Vienna, Buda-
pest, and Moscow.
At the end of the project, I returned to Washington to discuss
my observations in the fi eld with offi cials in U.S. government agen-
cies and departments. I also used this opportunity to explore the
status of police-assistance programs and related initiatives of policy
and legislation. Th is work, too, was supported by the U.S. Institute
of Peace.
I am also grateful to the Earhart Foundation, Ann Arbor, Mich-
igan, for providing me, once again, with a grant to complete a major
Preface vii
research project. Th ey understand that small grants can make a big
diff erence.
All that I have learned about changing police institutions and
about developing more humane and eff ective policing both at home
and abroad has come from seeking out and listening to people who
have been involved in such work. In this project alone they number
in the hundreds and come from thirteen countries. Th ey have been
extraordinarily generous in providing advice about people I should
see, opening doors, sharing insights, correcting mistaken impres-
sions, tolerating dumb questions, and providing memorable hospi-
tality. To all of them, my heartfelt thanks.
Unless one is extraordinarily gifted in languages, research
abroad requires the assistance of interpreters. I was blessed to be able
to work with three gifted, intelligent, and reliable people: Patricia
Elena Aguilar Javier in El Salvador, Vanessa Glodjo in Bosnia, and
Victoria Zaida in Ukraine. Th ey not only made me intelligible to
others and others to me, but also were insightful guides in matters
of etiquette and culture.
Johnna Christian and Eamonn Cunningham helped to assem-
ble and summarize the extensive literature on institutional change
at home and abroad that formed the basis of my NIJ monograph
().
I owe a special debt to Jennifer Bryant, a talented and intelligent
graduate student who served as my research assistant for the fi nal
two years of the project. She assembled materials, explored data-
bases, and painstakingly put together statistical tables.
Research that involves multiple grants, extended travel, and
complicated computer gyrations depends on generous help from
many people. For all of this tender loving care, I am particular grate-
ful to Arlene DeGonzague, Andrea Downey, Karen Silinsky, and Jo
Anne deSilva, all at the School of Criminal Justice, State University
of New York at Albany.
Finally, none of this work could be carried out without the
unfailing support of my wife. Extended research is a kind of insan-
ity, featuring long periods of abstraction and silence. She patiently
puts up with it all, for which I count myself very blessed.
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Contents
1 Problem and Opportunity
2 Democracy and the Police
3 U.S. Programs and Policy
4 Strategies of Reform
5 Security and Reform
6 Managing Assistance
7 Evaluating Impact
8 Organizing for Success
Appendix: Executive Summary of Recommendations
Bibliography
Index
Description:Every day the American government, the United Nations, and other international institutions send people into non-English speaking, war-torn, and often minimally democratic countries struggling to cope with rising crime and disorder under a new regime. These assistance missions attempt to promote dem
