Instituto de Estudios Políticos y Derecho Público "Dr. Humberto J. La Roche"
de la Facultad de Ciencias Jurídicas y Políticas de la Universidad del Zulia
Maracaibo, Venezuela
Esta publicación cientíca en formato digital es continuidad de la revista impresa
ISSN-Versión Impresa 0798-1406 / ISSN-Versión on line 2542-3185Depósito legal pp
197402ZU34
ppi 201502ZU4645
Vol.39 N° 68
Enero
Junio
2021
Recibido: 14/08/2020 Aceptado: 16/01/2021
ISSN 0798- 1406 ~ De pó si to le gal pp 198502ZU132
Cues tio nes Po lí ti cas
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de Es tu dios Po lí ti cos y De re cho Pú bli co “Dr. Hum ber to J. La Ro che” (IEPDP) de la Fa-
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cul tad de Cien cias Ju rí di cas y Po lí ti cas. Ins ti tu to de Es tu dios Po lí ti cos y De re cho Pú bli co
“Dr. Hum ber to J. La Ro che”. Ma ra cai bo, Ve ne zue la. E- mail: cues tio nes po li ti cas@gmail.
com ~ loi chi ri nos por til lo@gmail.com. Te le fax: 58- 0261- 4127018.
Vol. 39, Nº 68 (Enero - Junio) 2021, 343-355
IEPDP-Facultad de Ciencias Jurídicas y Políticas - LUZ
International Experience in Assessing
the Effectiveness of Law Enforcement
Agencies in Crime Prevention
DOI: https://doi.org/10.46398/cuestpol.3968.21
Vira Halunko *
Oleh Shkuta **
Oleh Predmestnikov ***
Nataliia Petrenko ****
Nina Holenko *****
Abstraсt
The objective of the investigation was to analyze some
international experience in assessing the effectiveness of law
enforcement in crime prevention. Methodologically, the dialectic
method, typical of materialistic philosophy, was combined with
scientic techniques of cognition. It is concluded that the basis
for assessing the effectiveness of law enforcement agencies in
different countries is based on a set of quantitative and qualitative criteria;
sometimes such criteria conict with each other, as some are benecial
for bureaucratic reporting, while others reect the public’s interests.
Public opinion, as one of the main criteria, is becoming increasingly
important in assessing the effectiveness of law enforcement
agencies in some countries (e.g., the Slovak Republic), and in the
US, France, Japan, Austria, and Italy, it is a traditional evaluation
tool. Ambiguous is the use of statistics to assess the effectiveness of
law enforcement in certain countries and Finally, there are countries
where criminal statistics are a priority to determine the effectiveness
of law enforcement and in others not.
* Vira Halunko, Professor, Doctor of Science in law, Professor at the Department of Professional and
Special Disciplines of Kherson Faculty, Odesa State University of Internal Affairs, Kherson, Ukraine.
ORCID ID: https://orcid.org/0000-0002-0563-0576. Email: vera.galunko.00@gmail.com
** Oleh Shkuta, Professor, Doctor of Science in law, Professor at the Department of Professional and
Special Disciplines of Kherson Faculty, Odesa State University of Internal Affairs, Kherson, Ukraine.
ORCID ID: https://orcid.org/0000-0003-0395-5710. Email: oleh_shkuts@ukr.net
*** Oleh Predmestnikov, Doctor of Science in law, Professor at the Department of Professional and Special
Disciplines of Kherson Faculty, Odesa State University of Internal Affairs, Kherson, Ukraine. ORCID
ID: https://orcid.org/0000-0001-8196-647X. Email: predmestnikov@ukr.net
**** Nataliia Petrenko Candidate of Science in law, Associate Professor at the Department of Professional
and Special Disciplines of Kherson Faculty, Odesa State University of Internal Affairs, Kherson,
Ukraine. ORCID ID: https://orcid.org/0000-0002-9641-718X. Email: naturlix84@ gmail.com
***** Nina Holenko, Candidate of Science in law, Associate Professor at the Special Phisical and Weapons
Training of Kherson Faculty, Odesa State University of Internal Affairs, Kherson, Ukraine. ORCID ID:
https://orcid.org/0000-0001-8743-4765. Email: nino4ka.golenko@ukr.net
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Vira Halunko, Oleh Shkuta, Oleh Predmestnikov, Nataliia Petrenko y Nina Holenko
International Experience in Assessing the Effectiveness of Law Enforcement Agencies in Crime
Prevention
Keywords: international experience in public order; control and
evaluation; law enforcement agencies; crime prevention
policies; criteria for the evaluation of lawenforcement.
Experiencia internacional en la evaluación de la
ecacia de las fuerzas del orden en la prevención del
delito
Resumen
El objetivo de la investigación fue analizar cierta experiencia internacional
en la evaluación de la ecacia de las fuerzas del orden público en la prevención
del delito. En lo metodológico se combinó el método dialectico, propio de
la losofía materialista, con técnicas cientícas de cognición. Se concluye
que la base para evaluar la efectividad de las agencias de aplicación
de la ley de distintos países se sustenta en un conjunto de criterios
cuantitativos y cualitativos; a veces, tales criterios entran en conicto
entre sí, dado que algunos son beneciosos para la presentación de
informes burocráticos, mientras que otros reejan los intereses del
público. La opinión pública, como uno de los criterios principales, se
está volviendo cada vez más importante para evaluar la efectividad
de las agencias de aplicación de la ley en algunos países (por ejemplo,
la República Eslovaca), y en los EE. UU., Francia, Japón, Austria e
Italia, es una herramienta tradicional de evaluación. Ambiguo es el
uso de estadísticas para evaluar la ecacia de las fuerzas del orden de
ciertos países y; nalmente, hay países donde las estadísticas penales
son una prioridad para determinar la ecacia de las fuerzas del orden
y en otros no.
Palabras clave: experiencia internacional en orden publico; control y
evaluación; agencias de aplicación de la ley; politicas
de prevención del delito; criterios de evaluacion de las
fuerzas del orden público.
Introduction
The study of the administrative and legal basis for the effectiveness of
assessing the activities of law enforcement agencies as subjects of nancial
and economic security of Ukraine is impossible without a detailed study of
the experience of foreign countries in this area. Today, the urgency of this
issue is justied by the fact that Ukraine largely imitates the activities of law
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enforcement agencies of the EU countries, in particular, in accordance with
European models, law enforcement agencies, prosecutors, NABU and DBR
of Ukraine have been reformed, however, no attention is paid to assessing
the effectiveness of these entities.
In general, researchers note that the assessment of the effectiveness
of law enforcement agencies of foreign countries is based on information
obtained from the study of the following areas: criminal statistics (number
of crimes per person, number of people serving sentences, the number of
detected crimes); the results of public opinion polls (the results of surveys
of citizens’ satisfaction with the work of law enforcement agencies, the
results of surveys of victims, representatives of government agencies that
interact with law enforcement agencies); the results of control exercised
by supervisory authorities; results of public control; reports of the
Commissioner for Human Rights; statistics of appeals to law enforcement
agencies, the content of these appeals; the level of corruption in law
enforcement agencies; establishing the number of law enforcement ofcers
and their ratio to the population; establishing the number of private security
structures and their ratio to the number of law enforcement systems (the
higher the number of private security structures, the lower the efciency of
the law enforcement system); systems of replacement of positions in law
enforcement agencies – appointment or competition; nancing system
(when assessing the results of work correlate the cost of maintaining law
enforcement agencies with the amount of averted or already compensated
damage; economic factor (the effectiveness of the law enforcement system
can be dened as the maximum reduction in crime for a given budget costs
of such activities).
1. Literature review
Based on the above, it is obvious that signicant attention is paid to public
opinion polls, the results of public control and consideration of citizens’
appeals, which indicates the orientation of law enforcement agencies to the
needs of citizens. This trend is especially noticeable today in the activities of
the police, according to which the police of more democratically developed
countries generally prefer the principles of “community policing”. Whereas
states where democracy has only just begun to emerge (Eastern Europe,
Central Asia), whose legislation is transitional and whose mechanism is
characterized by the remnants of communism, are more likely to adhere to
the principles of “zero tolerance” in policing (Lum, 2009).
Back in 1996, American scientists generalized the benets of following
the principles of “community policing”, including:
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Vira Halunko, Oleh Shkuta, Oleh Predmestnikov, Nataliia Petrenko y Nina Holenko
International Experience in Assessing the Effectiveness of Law Enforcement Agencies in Crime
Prevention
1. reducing the crime rate;
2. increasing the level of transparency of police activities;
3. increasing the level of citizens’ satisfaction with the police;
4. reducing the level of complaints about the activities of police ofcers;
5. increase the satisfaction of police ofcers with their work;
6. involvement of the public in the activities of police bodies;
7. improving the efciency of police activities and the quality of
performance of tasks assigned to police ofcers (McCold and
Wachtel, 1996).
O. V. Gordeev draws attention to the fact that, despite the different
traditions and historical experience in countries such as the United States,
France, Japan, Austria and Italy, constant public opinion polls are the
main tool for assessing the law enforcement agencies of these countries.
Moreover, for such states the issue of improving the forms of social control
over the activities of law enforcement agencies as guarantors of respect for
universal rights and freedoms remains relevant (Gordeev, 2017).
2. Materials and methods
The basis of the study is philosophical methods: dialectical (the basic
principles of which are objectivity, comprehensiveness, concreteness and
completeness of knowledge, division of the united and knowledge of its
contradictory sides etc.), logical (the main methods of which are analysis
and synthesis, induction and deduction, analogy, ascent from concrete to
abstract and from abstract to concrete), etc.
Among the scientic methods of cognition are used methods of system
analysis (structural, functional, factor, genetic), target, typological, model.
With regard to the knowledge of the realization of the human right to protect
the law, the method of institutional analysis allows us to justify the contours
of the real eld of the implementation of the human right to protect the law
as a single integrated legal institution, which is very valuable for identifying
the laws of its functioning and improvement; classify the funds it contains
into organizational and legal ones; to examine each organizational or legal
means in terms of its adequacy to the meaning and purpose of the human
right to protect the law, as well as its functional orientation to achieve its
goal - to eliminate the threat to human rights security or restore it.
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3. Results
In the states of Europe and the USA the basic models of law enforcement
activity, and accordingly also models of trust of citizens to law enforcement
agencies are already formed. In particular, the European model operates
in conditions of social tolerance, the American – more focused on the
principles and values of social identity. There is also a third model –
the Eastern, which traces a system of religious restrictions and taboos
(Loshitskyii, 2015).
In particular, in the Slovak Republic, the Minister of the Interior,
together with the Institute for Public Opinion Research, developed an
ofcial questionnaire to determine the level of public condence in policing
in various elds and to identify the reasons inuencing their position, which
was called “Social status and role of the police in the opinion of the citizens
of the Slovak Republic”. This is an example of existing models for nding
out the trust of citizens in the police, other law enforcement agencies, etc.
However, this is only the rst steps of the Slovak Republic in this direction,
given that according to a 2017 Eurobarometer survey, the highest level of
distrust in the police was observed in the Slovak Republic, which is about
53% of the population who expressed this opinion. For example, the lowest
level of distrust in the police among EU countries in Austria, about 11%,
although for EU member states the average is 23% (Andriichenko, 2018).
At the same time, such involvement of citizens in the assessment of
police activities has a positive effect on cooperation between society and
the police, reduces their contempt for each other, as both society and police
are interested in reducing crime and improving protection from criminal
encroachment.
However, the level of public condence is not the only criterion for
assessing the activities of the police and other law enforcement agencies,
and therefore we suggest paying attention to the experience of Canada,
where the basis for assessing the police are two indicators:
а) strategic (assessment of the impact of police activities on the state of
crime in the state, the level of public condence in the police).
b) operational (quantitative indicators of police activity contained in
annual plans and reports on their activities).
At present, the assessment of police in Canada uses the method of
ongoing improvement of service quality, which is used to evaluate all
types of government agencies and institutions. This method involves
a comprehensive assessment of the environment of a public body or
institution, which is a system where leadership, strategic planning,
cooperation with citizens, management of available resources and the end
results of these bodies and institutions are closely linked (Lelandais and
Bodson, 2007).
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Vira Halunko, Oleh Shkuta, Oleh Predmestnikov, Nataliia Petrenko y Nina Holenko
International Experience in Assessing the Effectiveness of Law Enforcement Agencies in Crime
Prevention
In the USA, police assessment has the following components: qualitative
assessment (individual and police unit) and quantitative indicators.
Individual assessment of a police ofcer’s activity is based on an annual
attestation, during which the immediate supervisor provides a qualitative
assessment of the subordinate’s work and his professional progress
according to a set of criteria dened by the regulations on the activities of a
particular police department. Such criteria are attention and concentration,
communication skills, resilience to stressful situations, exibility and
ability to work with different people, knowledge, ability to learn, initiative
and more. Not only the scores for each criterion are indicated, but also the
descriptive characteristics for each of them.
The USA police departments (separate territorial units within large city
departments) are evaluated by two conicting systems. On the one hand,
there are standard statistics that are convenient for bureaucratic reporting;
on the other, assessment by locals is becoming increasingly popular with
the spread of the concept of “community policing”. Accordingly, along with
the traditional reporting system, there is a practice of population surveys.
They range from basic “community feedback forms” (mostly on websites)
to comprehensive surveys that assess local priorities, expectations of the
police, compliance of actual police activities with these priorities and
expectations, real safety of life in the district and security by feel. Only an
indicator adopted by an elected body and announced as an ofcial indicator
in advance can acquire the status of an ofcial assessment.
The problem of quantifying the performance of the USA police unit, as
well as an individual employee, occurs in the largest police departments,
where the number of staff is signicant, and the territory of the municipality
is divided into sections. Criteria used in the following cases:
a) the percentage of opened cases against registered;
b) the ratio of the number of arrests to the number of registered crimes;
c) the number of detected crimes and the dynamics of their indicators
(Krapyvin, 2016).
In France, statistics on police performance are also taken into account
when assessing their performance. In particular, in 2002, the French police
introduced an approach such as a “culture of result”, which signicantly
changed the way the police generate statistics. According to this approach,
the highest police body sets quantitative targets for lower levels, as well as
establishes a system of bonuses for achieving them. At the same time, each
level of police activity has its own form of statistical data tables, which are
the basis of police reports. Accordingly, after receiving the reports, crime
statistics are compared with the activities of the police and the resources
available to them.
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At the same time, this model of activity and assessment of the French
police is not supported by all scientists. Among them are those who point out
that statistics without independent verication are a questionable indicator
of police performance. The lack of an independent audit of statistics at the
local level allows the police to be a monopolist in the production of crime
statistics and creates the necessary conditions for the manipulation of
statistics (Eterno and Silverman, 2012; Nazarova et al., 2019).
One form of assessing the effectiveness of law enforcement in the
United States is to accredit a law enforcement agency by an independent
institution on its own initiative, as accreditation is a right, not a duty, of a
law enforcement agency.
This accreditation is conducted by the board of an independent non-
prot organization – CALEA, consisting of 21 people, 11 of whom have
practical experience in law enforcement. The essence of accreditation is
a set of actions aimed at establishing compliance of the organization and
activities of US law enforcement agencies with various standards in the
main areas of their activities.
These standards, according to I. M. Osyka, help law enforcement
agencies:
- to improve opportunities for crime prevention and control of the
service area;
- to formalize the basic management procedures;
- to establish a fair and non-discriminatory treatment of staff and
normalize relations in the team;
- to improve the level of services provided to the population;
- to change coordination and interaction with other law enforcement
agencies;
- to increase the reputation in the eyes of the population and
the employees themselves (Osyka, 2015). It is obvious that the
accreditation of law enforcement agencies still has its advantages.
At the same time, the accreditation process involves ve stages.
The rst stage involves acquainting the law enforcement agency with
information about accreditation and registration for accreditation. After
registration, the second stage begins, at which the law enforcement body
signs the accreditation agreement and within 24-36 months from the date
of its conclusion carries out self-assessment. Upon completion of the self-
assessment phase, the law enforcement authority informs CALEA and
proposes to set a date for the start of the on-site assessment. The third
stage of accreditation involves the assessment of the organization and
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Vira Halunko, Oleh Shkuta, Oleh Predmestnikov, Nataliia Petrenko y Nina Holenko
International Experience in Assessing the Effectiveness of Law Enforcement Agencies in Crime
Prevention
activities of law enforcement by a team of CALEA experts on site. That is,
a team of experts directly located at the location of the law enforcement
agency, analyzes information about its activities, examines the necessary
documents, conducts public discussions and formulates nal conclusions
on the results of accreditation. This is followed by the fourth stage, in which,
if the law enforcement agency meets all the standards of organization and
activities, CALEA conrms this with an ofcial opinion, which is valid for
three years. After receiving this conrmation, the fth stage begins – the
law enforcement agency within three years from the date of accreditation
must monitor the compliance of its organization and activities with the
standards, provide evidence to support this. In addition, an annual report
must be submitted to CALEA.
This experience is undoubtedly progressive, but its implementation is
possible only in a democratically developed country, where all the principles
of democracy are implemented, and the public takes an active part in law
enforcement, in particular, informs the subjects of criminal offenses,
provides assistance in identifying and the investigation of certain socially
dangerous acts, and the management and employees of law enforcement
agencies are also aware of their purpose – to act solely in the interests of
society, and their activities are transparent to the public.
Accordingly, in the United States, the accreditation of law enforcement
agencies is provided in the form of a right, not an obligation. Unfortunately,
in Ukraine it is virtually impossible to implement the US experience in this
way today. At the same time, if we talk about the mandatory accreditation
of law enforcement agencies, then there are many issues without which it
can not be carried out. First of all, we are talking about the development of
appropriate standards of law enforcement, as well as the creation of a new
entity – a state-authorized body or institution that will verify compliance
with law enforcement of Ukraine to certain standards, after they conduct
self-assessment. However, given the reality of democracy in Ukraine, as
well as reforming the law enforcement system, in particular those that are
the subjects of nancial and economic security of the state (Tamosiuniene
et al., 2019; Yankovyi et al., 2020), we consider it impractical to implement
the US experience in accrediting law enforcement agencies in Ukraine.
One of the leaders in assessing the effectiveness of policing today is
Northern Ireland, which has a Policing Council, an independent public
body tasked with ensuring the effective and impartial operation of a police
service that is trusted by the entire population. Given the main purpose
of this council, monitoring the effectiveness of the police to improve the
interaction between the police and society is one of its main responsibilities.
Surveys of citizens’ trust in the police are conducted by the Police Council
twice a year, and their main focus is to nd out the level of citizens’ trust
in the police, which is established not by asking a direct question of trust
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or distrust in the police, but focuses on victimization, ie on the attitude
of citizens to the police, on the data on how a police ofcer behaves in an
emergency situation, the experience of citizens’ appeals to the police and
the level of effectiveness of the assistance received. In addition, the results
of the sociological study are open to the public (Davis, 2012).
In the United Kingdom (except Scotland), since 1996, the main body
that evaluates the work of the police is the Police Inspectorate, which is
not part of the government, is not part of ministries or police and reports
directly to Parliament, and its inspectors appointed by the monarch. At the
same time, policing in the UK is carried out at both national and local levels
by Commissioners for Police and Crime. This position is quite specic, as
the Commissioners for Police and Crime are elected by the population of the
territory served by the relevant police unit. The task of the Commissioners
for Police and Crime is to ensure the effectiveness of the relevant police
unit, as they annually submit a report on the activities of the police unit,
which includes information on the status of achievement of the objectives
set by the plan (Sviatokum, 2013).
The UK Police Inspectorate may conduct external and internal surveys
to assess police performance at the national level. It should be noted that
the external survey is based on the PEEL methodology, according to which
police activities are evaluated by:
- the criterion of effectiveness, ie how effectively the police prevent
crimes, investigate the facts of crimes committed, compensate for
the damage caused by them, as well as ght organized crime;
- the criterion of economy, ie how well the police use their resources
to meet the demand for police services, meet the organizational and
nancial requirements for the police, as well as the nancial position
of the police in the short and long term;
- the criterion of legality, ie whether police ofcers comply with
current legislation and ethical standards in the performance of their
duties, how well-off police personnel are and how they interact with
the public and the level of consideration of complaints and appeals
by police ofcers (PEEL Assessment, 2015).
From the above we conclude that the assessment of the effectiveness of
law enforcement in the UK (except Scotland) is based on qualitative and
quantitative criteria. External and internal surveys also play an important
role.
Other countries have taken into account the experience of the United
Kingdom, one of which is Portugal. According to the concept of measuring
the effectiveness of the Portuguese police, most attention is paid to assessing
the results of their activities on the following indicators:
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International Experience in Assessing the Effectiveness of Law Enforcement Agencies in Crime
Prevention
1. a sense of security;
2. a level of fear of crime;
3. a percentage of calls that were answered in the allotted time;
4. a number of complaints from citizens per 1,000 employees;
5. a reasonable percentage of complaints led by citizens (Gomes and
Mendes, 2013).
Although Scotland is part of the United Kingdom, the assessment of the
activities of the police in its territory differs from that considered above.
The most important feature is another list of criteria for assessing the
effectiveness of the police, which is focused on setting and achieving goals
and is called the Scottish Policing Performance Framework. This system
contains four areas of assessment:
1. quality of services provided;
2. citizens’ sense of security and safety;
3. criminal justice and the ght against crime;
4. efciency of management and activity.
For each group of criteria, strategic goals are dened, the implementation
of which is assessed by three groups of indicators: resources expended,
measures taken and their results. At the same time, the indicators
independently determined by the police are subject to audit by a specially
authorized state body in order to establish their reliability.
At the same time, the activities of Scottish police units are also assessed
through public opinion polls. Their main task is to supplement the ofcial
police statistics by surveying citizens about crimes they became aware of or
victims of during the reporting period. First of all, it allows you to identify
information about crimes that have not been reported to the police. In
addition, the personal opinion of citizens on the effectiveness of the police
is investigated (Buhaichuk, 2015).
Given Scotland’s experience in assessing the effectiveness of policing,
it should be noted that the focus of policing is on statistics, while public
condence surveys not only complement these data but also inuence the
formulation of conclusions on the effectiveness of the police in carrying out
the tasks assigned to it by law.
Conclusion
Thus, summarizing the foreign experience of states in assessing the
effectiveness of law enforcement agencies, we can draw the following
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conclusions:
1. the basis for assessing the effectiveness of law enforcement agencies
of foreign countries is a set of quantitative and qualitative criteria,
which are both: a) are closely interrelated;
2. b) conict with each other, given that some criteria are benecial
for bureaucratic reporting, while others reect the interests of the
public;
3. public opinion as one of the criteria is becoming increasingly
important in assessing the effectiveness of law enforcement agencies
of foreign countries (eg, the Slovak Republic), and in the US, France,
Japan, Austria and Italy, it is a traditional tool for assessing them;
4. ambiguous is the use of statistics in assessing the effectiveness
of law enforcement agencies of foreign countries: a) there are
countries where criminal statistics are a priority in determining
the effectiveness of law enforcement agencies, while questioning
its reliability due to lack of mechanisms to combat manipulation
of statistics (France); b) in some countries, self-determined by
law enforcement criminal indicators are subject to audit, which
minimizes the risk of falsication of statistics (Scotland);
5. assessment of the effectiveness of law enforcement agencies in
certain areas - the quality of services, a sense of security, the ght
against crime, the quality of management (Scotland);
6. the US experience is exceptional, where the assessment of the
effectiveness of law enforcement is carried out in the form of
accreditation, which is not a duty but a right of law enforcement;
7. the experience of Northern Ireland and the United Kingdom (except
Scotland) is positive, where the assessment of police activities is
carried out by specially formed bodies – the Police Council, the
Police Inspectorate.
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