Situational Crime Prevention and Comprehensive Treatment of Social Order in China Mainland YANG Xuefeng Department of Public Security Fundamentals National Police University of China Shenyang, China Abstract:With the rapid economic growth since 1980s, China Mainland has been experiencing crime waves. In order to deal with the problem of crime, China advocates a paradigm called “Comprehensive Treatment of Social order”, with a principle of “integrating fighting withprevention, and prevention first”. Theoretically, the most effective way to reduce crime may be a comprehensive approach to crime prevention which comprises a combination of different kinds of programs including social development programs, situational prevention programs and the like. However, considering the transitional nature of China Mainland, the situational crime prevention programs should play an indispensable part in the comprehensive paradigm with Chinese characteristics. Key words: Comprehensive Treatment of Social Order; Situational Crime Prevention Historically, China’s strategies against crime have long been influenced by Confucianism, Daoism, legalist school, Buddhism, and so on. Generally speaking, Chinese emperors had developed two lines of thoughts to control or prevent crime: rule by strict laws and rule by virtues. Confucius contrasted both in the Analects in the 6th century B.C., If the people be led by laws, and uniformity sought to be given them by punishment, they will avoid the punishment but have no sense of shame. If they be led by virtue, and uniformity sought to be given by rules of proper conduct they will have the sense of shame and moreover will be good. (Chen, 1990) Since October 1st, 1949, especially since 1978, China Mainland has been experiencing a period of unprecedented social and economic change. In recent 30 years, the gross domestic product has been growing by double digits and in 2010 China exceeded Japan to become the second largest economic entity in the world. However, one of the negative concomitant phenomena is the rapid increase of crime in both quantity and quality. For example, in 1978, China’s overall crime rate based on police statistics was only 54 per 100,000, but in 1991, the crime rate jumped to 237 per 100,000, and in 2001, the crime rate jumped again to 446 per 100,000. In recent years, the annual criminal incidence varies roughly around 5 million. However, traditional criminology as a field has provided little for Chinese justice system to the professional world of crime control and prevention because the rules it provides often do not commute. Traditionally, most of the criminological theories see the root causes of crime as lying in the genetic inheritance of individual offenders, their psychological make-up, their homes and 1 upbringing and the social and economic circumstances of their lives. But, criminality does not equal crime. Crime, as a form of behavior, occurs only when someone who is criminally motivated finds or creates a criminal opportunity. In other words, both motivation and opportunity are needed for crime to occur. It is now more widely recognized that most traditional criminological theories are, in fact, theories of criminality or delinquency but not theories of crime event. Traditional theories deal with the factors that cause people or groups to be disposed to criminal action. In other words, they deal with behavioral criminal tendencies, not criminal behavior itself. To address the increasingly serious problem of crime, in 1991, the Communist Party and the National People’s Congress respectively enacted the “Decision on Strengthening the Comprehensive Treatment of Social Order”. Some scholars call it “Comprehensive Treatment” paradigm with Chinese characteristics. In this paradigm, the fundamental guideline is “integrating fight with prevention, and prevention first.” Since then, comprehensive crime strategy has become the national policy for dealing with the problems of crime. It takes as its starting point the mobilization of the whole society to fight and prevent crime, and the strategies include political, economic, legal, cultural, and educational methods. Since 1960s and 1970s, situational crime prevention, which was originally developed by Clarke when he worked for the Home Office Research and Planning Unit in the U.K., has increasingly gained its momentum in western developed countries. Although it originally departed from the offender-based criminology, it is now moving into integration with traditional criminology and makes an excellent complement to the broadly-defined social crime prevention strategies. Similarly, in the “Comprehensive Treatment” paradigm with Chinese characteristics, situational crime prevention should also play an important role and complements other preventative measures so as to construct a comprehensive prevention system. Definition of Situational Crime Prevention and Its Features According to Clarke (1997), Situational crime prevention comprises opportunity-reducing measures that (1) are directed at highly specific forms of crime; (2) involve the management, design or manipulation of the immediate environment in as systematic and permanent way as possible; (3) make crime more difficult and risky, or less rewarding and excusable as judged by a wide range of offenders. Clarke (1997) points out five features of the definition that should be noted. First, situational crime prevention measures must be designed to highly specific categories of crime. Second, almost everyone has some probability of committing crime depending on the circumstances in which he/she finds himself/herself. Thus situational prevention does not draw hard distinctions between criminals and others. Third, changing the environment is designed to affect assessments made by potential offenders about the costs and benefits associated with committing particular crimes. These judgments are dependent on specific features of the objective situation and determine the likelihood of the offense occurring. This implies some rationality and a considerable degree of adaptability on the part of offenders. Fourth, that the judgments made by potential offenders include some evaluation of the moral costs of offending. Not all offenses are equally 2 reprehensible, even in the eyes of the most hardened offenders. This means that making it harder to find excuses for criminal action may be sometimes be an effective opportunity-reduction technique. It also means that differences in the moral acceptability of various offenses will impose limits on the scope of displacement. Finally, the definition of situational prevention is deliberately general in that it makes no mention of any particular category of crime. Rather, situational prevention is assumed to be applicable to every kind of crime, not just to "opportunistic" or acquisitive property offenses, but also to more calculated or deeply-motivated offenses. Wortley (1998, 2001) describes a two-stage situational prevention model which attempts to give fuller recognition to the complexity of the person-environment relationship. Wortley suggests that a distinction should be made between situations which have a precipitating function for behavior and situations which regulate behavior through the opportunity characteristics they pose. To date, Wortley claims, little explicit recognition has been given in situational crime prevention to the role of crime precipitators. It is the latter stage of the offending process -- the cost-benefit analysis – which has been the traditional focus and which has provided the rationale for opportunity-reduction strategies aimed at blocking offenders’ criminal behavior. The two-stage situational prevention model extends the traditional opportunity-reduction model in two ways. First, the model suggests that some criminal behavior may be entirely avoided by intervention at the crime-precipitation stage without the need in these cases for opportunity reducing strategies. Second, the model includes a feedback-loop whereby the excessive use of constraint is seen to increase precipitating pressures on behavior. Admitting the usefulness of Wortley's classification of precipitators for tackling the difficult problem of reducing the motivation to offend in aversive capsule environments, Cornish and Clarke (2003) examined the assumptions underlying the development of situational crime prevention and further suggested some additions and revisions for the theoretical and technical developments in situational crime prevention. Theoretical Developments in Situational Crime Prevention Since the situational approach to crime prevention was systematically developed in Britain in the 1960s and 1970s, there have been many criticisms on situational crime prevention strategy. Except for the social and ethical objections which are invariably raised, there are two major theoretical limitations of traditional situational crime prevention which relies largely on opportunity-reduction strategies. First, some criminologists argued that situational crime prevention fails to tackle the root causes of crime but will simply displace crime from one place to another, from one time to another, from one target to another, or possibly from one kind of crime to another. From this perspective, having an initial crime avenue blocked seems a rather trivial setback for criminally motivated individuals and unlikely to dissuade them from simply trying their luck elsewhere. The second theoretical difficulty with a narrow opportunity-reduction model of crime prevention is its inability to adequately account for interventions which produce opposite outcomes to those intended. It is often asserted that situational measures which physically restrict or constrain potential offenders may be counter-productive and produce the very conditions which support criminal behavior. Grabosky (1996) details a number of specific ways that situational prevention can backfire. To respond all of these criticisms, environmental criminologists gradually 3 develop some theories and approaches as theoretical basis of situational crime prevention. They include lifestyle exposure theory/routine activity theory, rational choice perspective, environmental criminology, etc. Hinderlang et al (1978) developed a theory of personal victimization which argued that the lifestyle and routine activity of an individual or group place them in social settings with higher or lower risks of being victimized. In this sense, the alteration of the lifestyle of potential victims would dramatically reduce the probability of their victimization. In their seminal work, Cohen and Felson (1979) outlined the well-known crime triangle model, which says there are three minimal elements for direct-contact predatory crime: a motivated offender, a suitable target or victim and the absence of a capable guardian against crime. Originally, routine activity theory take the motivated offender as a constant, but recently this approach has been expanded to integrate social control theory (Hirschi, 1969). Felson (1986) was able to show that there are people in offenders' lives—parents, relatives, spouses, teachers and coaches, for example—who, when present, will prevent the offender from deviating. Felson called these people "handlers." While handlers act on offenders and guardians act on targets, the third group, which Eck (1994) calls as controllers, acts on places. The people who manage places—store clerks, life guards, park rangers, airline attendants, and countless others—also control crime by regulating the behavior of place users. So the crime triangle has become into problem analysis triangle as follows (see figure1). According to Clarke R.V. and Eck J. E. (2003), for the target/victim, the capable guardians usually refer to those protecting themselves, their own belongings or those of family members, friends, and co-workers. Guardians also include public police and private security; for the offender, the handlers refer to someone who knows the offender well and who is in a position to exert some control over his or her actions. Handlers include parents, siblings, teachers, friends and spouses. Probation and parole authorities often augment or substitute for normal handlers; for the place, the controller is the manager, the owner or designee who has some responsibility for controlling behavior in the specific location such as a bus driver or teacher in a school, bar owners in drinking establishments, landlords in rental housing, or flight attendants on commercial airliners. Figure 1. Problem Analysis Triangle 4 Adapted from Clarke R.V. and Eck J. E. 2003 As an outcome of the conference sponsored by the Home Office at Christ's College, Cambridge, England, in July 1985, the chapters in Cornish and Clarke (1986) were designed to explore and elaborate a decision-making approach to the explanation of crime. This perspective, rational choice theory, was one adopted by a number of social scientists in disciplines such as economics (Becker, 1968), psychology (Tversky, 1972; Kahneman et al., 1982), law (Posner, 1973) and sociology (Coleman, 1973; Heath, 1976) and, of course, criminology. The authors integrated insights provided by the various disciplines into a more comprehensive and satisfactory representation of criminal behaviors. Its starting point was an assumption that offenders seek to benefit themselves by their criminal behavior; that this involves the making of decisions and of choices, however rudimentary on occasion these processes might be; and that these processes exhibit a measure of rationality, albeit constrained by limits of time and ability and the availability of relevant information. In other words, rational choice perspective suggested by Cornish and Clarke recognized the bounded or limited rationality, so it is different to some extent from the eighteenth century classical “free-will” idea of Cesare Beccaria and Jeremy Bentham. A fundamental distinction was made between criminal involvement and criminal events in rational choice perspective. Criminal involvement refers to the processes through which individuals choose (i) to become initially involved in particular forms of crime, (ii) to continue, and (iii) to desist. The decision process at each of these stages is influenced by a different set of factors and needs to be separately modeled. In the same way, the decision processes involved in the commission of a particular crime are dependent upon their own special categories of information. Involvement decisions are characteristically multistage and extend over substantial periods of time. Event decisions, on the other hand, are frequently shorter processes, utilizing more circumscribed information largely relating to immediate circumstances and situations. More importantly, it was further recognized that the decision processes and information utilized could vary greatly among offenses. A number of implications follow from rational choice perspective. If crimes are as supposed the result of broadly rational choices based on analyses of expected rewards and punishments, it suggests that analysis of criminal behavior should be more crime-specific; and that adequate attention should be paid to the criminal event itself and the situational factors that influence its commission. Obviously, it is consistent with the definition and features of situational crime prevention cited above. Environmental criminology treats the characteristics of places and the target search process as key variables in the committing of crime. As such, environmental criminology is a highly interdisciplinary area of study, drawing upon insights from architecture, criminal justice, geography, political science, psychology, sociology, and more. Environmental criminology studies criminal events as products of the convergence of potential offenders with potential targets at specific points in space-time under specific sets of limiting and facilitating conditions (Brantingham, P. and Brantingham, P., 1991). Studies in this field have focused on spatial patterns in offender and target movement against the backdrop of broader social routines. They have generally demonstrated that offenders move around in predictable and routine ways like everyone else. The journey to crime is similar to and subject to the same constraints as the journey to work or the shopping trip. In this sense, at least, most criminals are not different from other non-criminals. Geographical patterns in crime have been noted since the mid-19th century 5 pioneering work of Andre-Michel Guerry and ambert-Adolphe Quetelet who mapped, on a national basis, violent and property offences and examined their spatial relationship to poverty. Empirical criminology began with Quetelet's (1842) observations of more crime in some parts of France than in others. Spelman and Eck, (1989) argued that the concentration of crime in a few hot places seemed greater when it was compared to the concentration of crime among individuals. Brantingham, P. and Brantingham, P. (1993, 1995) analyzed crime patterns in terms of nodes, paths, and edges. Nodes are important places to would-be offenders, such as places which they live, work and socialize. Offenders are most likely to commit crimes around these nodes. Paths are routes between nodes which are vulnerable to crime. Edges are boundaries or barriers between different types land use. The most common example of edges is a street or an area which separates an industrial zone from an urban residential neighborhood. Crime rates are often high in these edges because of their environmental or social factors. Rossmo, D.K. (2000) reversed the model from environmental criminology which predicts where criminals are likely to commit their crimes to aid criminal investigations. Analyzed in light of journey to crime models, a set of linked crime locations can point investigators to the offender’s main activity nodes and provide a useful tool for prioritizing investigative leads. To summarize, the theoretical developments in situational crime prevention suggest that the offenders, victims/targets, places, handlers, guardians, managers do not distribute randomly. Moreover, the willingness and ability of the handlers, guardians, managers to discourage crime by situational crime prevention techniques influence the opportunity structure and further change the rates and nature of crime. Development in the Techniques of Situational Crime Prevention Situational crime prevention works on the premise that the crime reduction is possible if the opportunities for crime are significantly reduced. This objective can be achievable in various ways. Nearly all situational crime prevention techniques may be implemented by a ‘multi-agencies partnership’ of all basic community institutions such as school, municipals, health centres, transport authority, business enterprise, communication departments, entertainment centres like cinema, clubs, theatres etc. Opportunity structure is the key factor in situational crime prevention techniques. Felson and Clarke (1998) elaborated the opportunity and crime model by suggesting ten principles: 1. Opportunities play a role in causing all crime; 2. Crime opportunities are highly specific; 3. Crime opportunities are concentrated in time and space; 4. Crime opportunities depend on everyday movements; 5. One crime produces opportunities for another; 6. Some products offer more tempting crime opportunities; 7. Social and technological changes produce new crime opportunities; 8. Opportunities for crime can be reduced; 9. Reducing opportunities does not usually displace crime; 10. Focused opportunity reduction can produce wider declines in crime. 6 In Clarke, R.V. (1992), a classification of twelve opportunity-reducing techniques was introduced, which itself was a modification of an earlier classification proposed by Hough et al. (1980). Five years later, Clarke and Homel's (1997) further modification left eight of the original categories untouched, modified the remaining four and added four new ones for a total of sixteen techniques. In Cornish, Derek.B.and Clarke, R.V. (2003), the authors outlined five primary ways in which a situation can be altered to reduce the likelihood of crime occurring. The five ways have been developed into twenty-five techniques of situational crime prevention as follows: 1. Increase the effort for the offender to carry out the criminal act. (1) Target harden (2) Control access to facilities (3) Screen exits (4) Deflect offenders (5) Control tools/weapons 2. Increase the risk for the offender. (6) Extend guardianship (7) Assist natural surveillance (8) Reduce anonymity (9) Use place managers (10) Strengthen formal surveillance 3. Decrease the benefits the offender will achieve from the crime. (11) Conceal targets (12) Remove targets (13) Identify property (14) Disrupt markets (15) Deny benefits 4. Reducing or avoiding the provocations that may tempt offenders into committing the act. (16) Reduce frustrations and stress (17) Avoid disputes (18) Reduce arousal and temptation (19) Neutralize peer pressure (20) Discourage imitation 5. Remove the excuses from the offender so that they cannot justify their actions. (21) Set rules (22) Post instructions (23) Alert conscience (24) Assist compliance (25) Control drugs and alcohol As Clarke (1997) pointed out, the classification of opportunity-reducing techniques has constantly been undergoing change. This is due to the developments (1) in theory which suggest new ways of reducing opportunities, (2) in practice as new forms of crime are addressed by situational prevention, and (3) in technology which opens up new vistas for prevention, just as it does for crime. So it is reasonable for us to anticipate the increasingly refined classification and techniques. 7 Crime Waves in New China and Comprehensive Treatment Police crime statistics show that China mainland has experienced five crime waves since 1950. Especially since 1978, with the rapid development of industrialization and urbanization, crime rates in China mainland are skyrocketing. Table 1. Crime Incidence in China Mainland Year Crime incidence (per 100,000) Year Crime incidence (per 100,000) 1950 51.3461 1980 75.7104 1951 33.2741 1981 89.0281 1952 24.3003 1982 74.8476 1953 29.2308 1983 61.0478 1954 39.2229 1984 51.4369 1955 32.5829 1985 54.2005 1956 18.0075 1986 54.7115 1957 29.8031 1987 57.0439 1958 21.1068 1988 82.7594 1959 21.0025 1989 197.1901 1960 22.2734 1990 221.6997 1961 42.1934 1991 236.5709 1962 32.4639 1992 158.2695 1963 25.1226 1993 161.6879 1964 21.5352 1994 166.0734 1965 21.6125 1995 169.0407 1966 17.4678 1996 160.0676 1967 16.1377 1997 161.3629 1968 16.582 1998 198.607 1969 19.5691 1999 224.9319 1970 23.004 2000 363.7307 1971 32.3623 2001 445.7579 1972 40.2573 2002 433.6712 1973 53.582 2003 439.3893 1974 51.6419 2004 471.8122 1975 47.5432 2005 464.8401 1976 48.8813 2006 465.3265 1977 54.8415 2007 480.7517 1978 53.5698 2008 488.4960 1979 63.6222 2009 557.9915 Constructed by author from different data sources, including Wang Mu (2005) and Zhu Jingwen (2011). Although it is well seen from table 1 that since 1990s the crime rates have been increasing sharply, the rate still quite low compared with other developed countries such as the United States, even 8 with other economically developing countries. Another undeniable fact is there is a large dark figure of crimes which are not discovered, reported or recorded for a variety of reasons, as in most other countries. So, the crime rates cannot be seen as the real number of the crime incidence. However, it is not the purpose here to discuss the accuracy or validity of the criminal statistics; rather, it is enough to admit that crime rate has been increasing sharply in China since 1990s. Generally, it is called the fifth wave of crime in New China. To effectively deal with the exacerbating crime problem, China has adopted “Comprehensive Treatment” paradigm since 1990s instead of “to fight severely against crime” campaign in the 1980s. In this paradigm, the fundamental guideline is “to combine fight with prevention, and prevention first.” In other words, the “Comprehensive Treatment” emphasizes more than ever the role of prevention in crime strategies, although in practice some preventative measures still cannot be fulfilled deeply. Since then, comprehensive crime strategy has become the national policy for dealing with both symptoms and root causes of the crime problems. It takes as its starting point the mobilization of the whole society to fight and prevent crime, and the adopted strategies include political, economic, legal, cultural, and educational methods. The domains of “Comprehensive Treatment” include six dimensions: fighting, prevention, education, management/administration, construction, rehabilitation. Fighting against crime means that the criminal justice institutions reactively take formal control measures to impose specific deterrence on actual offenders. Prevention in the domains here has a specific meaning, for it just means to take some particular measures to prevent potential crime from occurring. In contrast to this, the generalized term of prevention means both prevention beforehand and control or punishment afterwards. Education not simply means intellectual education but also includes ideological and political education,moral education and law education so as to reduce the number of motivated offenders. Education is regarded as one of the measures dealing with root causes of crime. Management/administration in “Comprehensive Treatment” includes both internal management for any unit and public security administration for police forces. The meaning of construction is so broad that it includes construction in ideology, organization, legal and procedural systems and more. Rehabilitation is designed to gaizao or ganhua the actual offenders to achieve individual self-improvement through proper institutional guidance. In short, the “Comprehensive Treatment” paradigm with Chinese characteristics is the product of experiences and lessons which the Chinese Communist Party and governments at all levels have learnt from addressing the complex problems of crime. It focuses on the symptoms and causes of crime and emphasizes the mobilization of every class of the whole society. Since 1990s, it has become the national strategy for dealing with the increasing serious problem of crime. However, on the one hand, the characteristics of comprehensiveness is crucial to achieve much success in reducing crime, on the other hand, it is most difficult to integrate many different programs into such a sole paradigm. Roles of Situational Crime Prevention in Comprehensive Treatment Theoretically, the most effective way to reduce crime may be a comprehensive approach to crime prevention which comprises a combination of different kinds of programs including social 9 development programs, situational prevention programs, community programs, legislative programs, police programs and so on. However, in practice, the comprehensive approach is difficult to implement, and as a consequence, it is hardly to fully achieve the expected outcomes. On the other hand, as discussed above, situational crime prevention has now been efficiently established in many western countries so as to make up an important component of crime prevention strategies, as a result, there is no sound reason to doubt its effectiveness in the “Comprehensive Treatment” paradigm with Chinese characteristics in that China is experiencing the similar crime trends like other developed countries in the process of modernization and industrialization. The underlying utilitarian philosophy and cost-benefit calculation behind situational crime prevention are consistent with the principles of marketing economy. So at least for the time being, situational crime prevention should play a key role in the “Comprehensive Treatment” paradigm with Chinese characteristics. I would like to make some suggestions in this area: 1. To empirically test the theoretical bases of situational crime prevention in Chinese context. Criminology in China has gained much development since 1980s, but it is known that the criminologists in China are good at reasoning abstractly but not at testing empirically. So far, the rational choice perspective, routine activity theory and environmental criminology underlying situational crime prevention have not been truly tested in Chinese context. For example, the effects of crime displacement and diffusion of benefits should be carefully examined. Moreover, the philosophical and ethical issues such as the potential of “fortress society” or a “big brother” state should also be subject to scrutiny. 2. To empirically evaluate and compare the efficiency and usefulness of various programs including situational crime prevention initiatives in Chinese context. As a matter of fact, there is scarcely evaluation program for “Comprehensive Treatment” paradigm. Consequently, we do not have much evidence-based support for or against the various crime prevention initiatives. Traditionally, the task of criminology in China seems to be simply to propagandize the various projects addressing crime problems designed by the government. For example, the closed circuit television (CCTV) system as a method of controlling and investigating criminal incidence has been widely adopted, but its potential intrusion on individual freedom has not been seriously explored. 3. To develop the crime-specific analysis system. As situational crime prevention has a highly crime-specific focus, one should follow the problem analysis triangle to analyze the specific crime problems and make rather finer distinctions than those commonly made in criminology. Empirical studies suggested that the kinds of individuals involved in different forms of residential burglary, such as burglaries committed in middle-class suburbs, in public housing, and in wealthy residential enclaves, their motivations, and their methods all vary considerably (Cornish and Clarke, 1986). 4. To grant officially for research and development of various situational techniques. As Clarke (1997) points out, many successful situational prevention initiatives were propose by hard-pressed managers seeking practical ways to solve troublesome crime problems confronting their businesses or agencies. Only rarely were they assisted by traditional criminologists and governments at a variety of levels. Even in the United States and Canada, the situational crime 10 prevention programs have not gained funding support from the federal governments until recently. To maintain the sustainable development of social economy, both Chinese central government and local governments should provide more funding for research and development of various crime prevention programs including situational techniques. 5. To develop findings of criminology that can commute. As Brantingham said in the foreword of Rossmo (2000), while most criminals live in poor neighborhoods, most poor people are not criminal. While most burglars are youthful, most youths do not commit burglaries. While most serious child abusers were themselves abused as children, most abused children do not become child abusers. That is to say, these rules do not commute. In contrast to this, the models derived from opportunity theories are to a large extent commutative and have a crime-specific focus, so situational crime prevention programs as cost-effective and practice-oriented alternatives should be developed. Conclusion In conclusion, I would like to refer once more to the fact: the most effective way to reduce crime may be a comprehensive approach to crime prevention which comprises a combination of different kinds of programs including social development programs, situational prevention programs and the like. So the “Comprehensive Treatment of Social Order” paradigm rather than merely “Getting Tough on Crime” (Williams, 2000) is one of the wisest choices in dealing with crime. 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