Does Private Security Affect the Level of Crime? A test using state regulations as instruments Bruce L. Benson and Brian Meehan Mailing Address: Department of Economics, Florida State University, Tallahassee, FL 32306. Emails: bbenson@fsu.edu & bmeehan@fsu.edu Abstract Private security is employed to deter criminals from attacking specific targets, presumably not to produce general deterrence. Indeed, private security generates negative spillovers if criminals substitute non-protected targets for protected targets. Specific deterrence efforts may generate positive spillovers too, however, by raising the expected cost of committing crimes, thereby reducing crime for the community at large. The hypothesis that private security deters crime within a community is tested. The demand for private security in an area is expected to be simultaneously dependent on the level of crime, so an instrumental variable approach is employed in a panel-data fixed-effect model using data from urban counties during 1998-2010. Instruments for the amount of private security are statewide licensing regulations for the firms specializing in providing security, since these regulations should influence entry at the local level. Various types of violent and property crime are shown to be negatively and significantly related to increases in private security. That is, private security has a general deterrence effect. Key Words: private security, general deterrence, specific deterrence, instrumental variables, licensing regulations 1 Introduction Since Gary Becker's 1968 exploration of the incentive for criminal activity, economists have been testing the deterrence hypothesis.1 Large numbers of studies have examined the impacts on crime of both public policing and punishment, but relatively little work has considered the potential impact of private investments in crime control. This relationship has not attracted much research interest even though more is spent on private security than on public policing in the United States (Ayres and Levitt 1998; Benson 1998, 79-80).2 In fact, private security employees in the United States are estimated to outnumber public police by as much as three to one (Joh, 2004), and the market for security is growing rapidly throughout most of the world (Graduate Institute of International Development Studies 2011, 101).3 Recent estimates report between 19.5 and 25.5 million formally employed private security personnel in seventy countries (Graduate Institute of International Development Studies 2011, 101).4 The study presented below 1 See Tauchen (2010) for a review of relatively resent studies of this type and references to older reviews of earlier work. 2 Private security involves a wide variety of personnel, of course, ranging from night watchmen to highly trained/skilled security advisors, but it also includes substantial investments in capital, including alarms, cameras, safes, and so on. See Benson (1998, 75-93; 2013) for more details. 3 The Graduate Institute of International Development Studies (2011, 101) estimated that the average annual worldwide growth rate for private security employment has been between seven and eight percent from the mid-1980s to the late 2000s. In the U.S. the number of private security firms increased 116 percent from 11,675 in 1988 to 25,249 in 2007, these firms increased their employment of security personnel from 473,308 to 788,766 over the same period, roughly 66.6 percent (County Business Patterns, various years). Note that these figures do not include in-house security by firms and organizations that are not specialized in the provision of private security. Nonetheless, using these data, the average annual growth rates, 4.1 percent and 3.5 percent, for the U.S. appear to be lower than those for the world as a whole. This probably reflects the fact that the private security market grew relatively rapidly in the U.S. during the 1960s, 1970s and 1980s, so it was already quite large by the mid to late 1980s. For instance, the number of private security firms in the U.S. was 1,988 in 1964 and they employed 62,170 security personnel. Therefore the number of firms increased by 483 percent between 1964 and 1988, an average growth rate of over 20 percent, while employment by these firms increased by 661 percent, an annual average of over 27.5 percent. See Blackstone and Hakim (2010) for details about the structure of the private security market in the U.S. as well as details about growth and diversity of services. 4 Perhaps surprisingly, for instance, the country with the largest number of private security employees is China with an estimated five million personnel, roughly two to two and a half times as many as the U.S.. considers the impact of one particular type of private crime-control investment - services provided by firms specializing in the provision of private security. The question considered here is, do these investments in private security actually reduce overall crime?5 The amount of crime and the demand for security is expected to be simultaneously determined (Ehrlich 1973): while security investments are expected to reduce crime, demand for and investments in security are simultaneously expected to depend on the level of crime in a community. The empirical problem is how to separate the security-determines-crime relationship from the crime-determines-security relationship. An exogenous shock not related to crime but that affects the amount of security in an area, can help isolate the effect of security on crime. Therefore, an instrumental variable approach has been used to isolate public-sector institutions’ effects on crime in a number of studies of the public-security and crime relationship. For instance, Levitt (1997, 2002) used gubernatorial and mayoral election cycles as well as firefighter employment in metropolitan areas to instrument for public sworn police officers. Klick and Tabarrok (2005) used terrorism alert levels post 9/11 to instrument for public police levels in Washington DC, and Evans and Owens (2007) used federal grants from the Community Oriented Policing Services program (COPS) as the exogenous instrument for changes in public police officers. These studies all found a negative correlation between the instrumented public police force and most types of crime (as have many others), but they did not consider the potential impact of private security on crime.6 5 There is substantial evidence that private security reduces crimes against protected targets, as noted below, but this specific deterrence may simply be a displacement effect as criminals shift to less wellprotected targets (Becker 1968, 201). As explained in Section 2 below, however, some private security investments appear to generate general deterrence. 6 In the process of re-examining Lott and Mustard’s (1997) findings regarding the impact of right-to-carry concealed handgun laws for potential missing variable bias, Benson and Mast (2001) added controls for private security to the Lott-Mustard model, employing an instrumental-variable approach in cross-section time-series pool of data from over 3000 U.S. counties. They found general deterrence impacts of private This study uses state-level private security licensing regulations to instrument for private security establishments in a sample of urban counties. The state-level regulations should not be correlated with county-level crime, but they should be determinants of county-level entry into the private security market. In fact, the approach taken in choosing the instruments was to ask ourselves: if we were entrepreneurs wanting to start a private security firm, what license(s) must we get and what start up costs would the licensing requirements impose?7 While requirements vary considerably across states8 (and through time in several states), the most significant entry requirements appear likely to be those setting bond/insurance levels, minimum law-enforcement experience, minimum training, and testing. Section 2 below briefly reviews research dealing with private security and deterrence in order to place this study in context. Data employed to examine the private-security crime relationship are described in Section 3. The econometric model is developed in Section 4, where empirical results are also presented. Section 5 offers concluding comments. 2 Private Security and Crime One reason for the relative lack of research on private security’s impact on crime probably is a theoretical point raised by Becker (1968). The major intended benefit of investments in private security is a localized or "specific" deterrence for an individual target (e.g., a person, home or security for at least some crimes, as explained below, but data and specification issues (e.g., missing data, weak instruments) that resulted from the focus on the Lott-Mustard model suggest that even more significant impacts may occur. 7 If regulators are captured, a la Stigler (1971), various regulations should be negatively related to the number of security firms as they limit competitive entry and create market power. If regulators serve the public interest by preventing entry of unqualified and dishonest firms, thereby insuring quality, entry is also limited. However, such public-interest regulation may enhance the attractiveness of and demand for the regulated services, suggesting that some regulations could even be positively correlated with some measures of the level of private security in a market [e.g., there could be fewer firms but more employees]. 8 In fact, some states do not have firm-level licensing requirements. If such a state has individual-level requirements an entrepreneur entering the market would have to have an individual license, so these regulations still apply. As explained below, however, there are states with no licensing requirements. business establishment), a geographical area (e.g., neighborhood, private gated community, shopping mall, or business district), or a specific type of activity (e.g., railroads in the U.S. are protected by a private force of railroad police). Such focused specialization is intended to raise the expected costs of crime against the specific protected entity, activity or area by reducing the probability that a criminal will succeed in an attempted theft or violent attack of that target.9 Criminals deterred from victimizing one entity, activity or location because of private protection efforts may, however, simply find another unprotected victim, activity or location. Therefore, even though such investments substantially reduce offenses against specific targets, they may not have large impacts on total offenses (Becker 1968, 201). While such negative geographic spillovers clearly occur, 10 positive spillovers also are possible. Ayres and Levitt (1998) illustrate this in their empirical analysis of the impacts of Lojack, a hidden radio transmitter installed in cars, which can be remotely activated if the car is stolen. 9 A number of studies report significant specific deterrence. For instance, Hannan (1982, 91) found that the presence of private guards in banks "significantly reduce the risk of robbery. Accepting point estimates, the magnitude of this reduction is approximately one robbery attempt a year for those offices which would have otherwise suffered a positive number of robbery attempts." Similarly but on a broader scale, Clotfelter (1977, 874) considered the impact of private and public security services on the manufacturing, wholesaling, and finance, insurance, and real estate sectors; his empirical results "indicate that private protective firms are more effective than public police at protecting firms in these industries." The same apparently is true for railroads, which have had their own private police force in the U.S. since the end of WWI. Between the end of World War I and 1929, for instance, freight claim payments for robberies fell by 92.7 percent, from $12,726,947 to $704,262 (Wooldridge 1970, 116; also see Dewhurst 1955). Residential communities protected by private security also enjoy much lower crime rates than surrounding areas [e.g., see Donovan and Walsh (1986), Walsh, et al. (1992)]. 10 For instance, changing behavior of bank robbers observed by FBI officials in the Washington D.C./Maryland area illustrate the specific deterrent impact of private security equipment along with negative geographic spillovers (John Jay College of Criminal Justice/CUNY 1997b, 8). Increased security measures taken by banks in the urban and suburban areas of Washington D.C. and Maryland resulted is a drop in bank robberies in these urban/suburban areas. However, this drop was accompanied by a dramatic increase in robberies in small-town branches in rural Maryland. Bronars and Lott (1998) report similar negative geographic spillovers due to right-to-carry concealed handguns. In this context, however, it should be noted that increases in public policing efforts in one area also lead to increased criminal activity in nearby areas (Rasmussen et al. 1993), so negative spillovers are not exclusive to private security. Indeed, a reallocation of public police or prisons in order to increase efforts to control one type of crime reduces efforts against other crimes, all else equal, and those crimes increase (Benson, et al. 1998; Benson 2009, 2010, 2013). Thus, allocations of public security have negative impacts on people who are relatively unprotected too. Lojack greatly reduced the expected loss for car owners who use them, since 95 percent of the cars equipped with these devises are recovered compared to 60 percent for non-Lojack equipped cars. Therefore, the estimated mean loss per auto theft for cars equipped with Lojack is about 25 percent of the expected mean loss for cars without this device. However, this direct benefit for the individual using the device is only part of the total benefit arising from its availability and use. There really is no visible indication that a vehicle is equipped with Lojack. Therefore, a potential car thief does not know whether Lojack protects a potential target vehicle or not. Ayres and Levitt (1998) found that Lojack had a significant crime reducing effect, as a one percentage point increase in installations of the device in a market was associated with a 20 percent decline in auto thefts within large cities and a five percent reduction in the rest of the state. Since other crime rates are not correlated with the drop in auto theft and installation of Lojack, the obvious implication is that many potential auto thieves are aware of the increased probability that they will be arrested, and are deterred as a consequence. Indeed, Ayres and Levitt (1998, 75) concluded that “Lojack appears to be one of the most cost-effective crime reduction approaches documented in the literature, providing a greater return than increased police, prisons, job programs, or early education interventions.” Because of the controversy surrounding firearms and violence, firearm ownership has attracted more study than other specialized private forms of personal protection. Knowledge of the potential dangers posed by armed victims generates considerable incentives to avoid victims known to be or relatively likely to be armed, and criminals apparently respond to these incentives. For example, consider the impact of publicized programs to provide training in firearm use for potential victims. One such effort occurred in Orlando, Florida between October 1966 and March 1967. The program was designed to train women in the safe use of firearms because of the sharp increase in rapes in the city during 1966, and it was widely publicized in Orlando newspapers. Kleck and Bordua (1983), in their examination the consequences of this program, reported that the rape rate in Orlando fell from a 1966 level of 35.91 per 100,000 inhabitants to only 4.18 in 1967. This was clearly not a part of any general downward trend since the national rate was increasing, and rates in surrounding metropolitan areas, as well as in Florida as a whole (excluding Orlando), were either constant or increasing over the same period. Furthermore, this decrease did not reflect a continual downward trend for Orlando since the trend had been erratic but upward for the previous several years. This program also had positive spillovers for another type of crime. The Orlando burglary rate declined, not surprisingly, since burglary probably was the most likely crime category other than rape in which a criminal might confront an armed female victim.11 Similar deterrence impacts are suggested by Lott and Mustard (1977), Lott (1998), and a number of subsequent studies regarding consequences of right-to-carry-concealed-handgun legislation. Lott and Mustard employed a very large data set and controlled for a wide range of socioeconomic factors as well as arrest rates. They found that violent crimes, including murder, rape and robbery, are significantly deterred when citizens are allowed to carry concealed handguns. Indeed, one set of estimates suggest that if the states that did not have right-to-carry laws in 1992 had adopted such laws, approximately 1,570 murders, 4,177 rapes and more than 60,000 aggravated assaults would have been prevented. Follow-up studies by Lott and several other researchers (e.g. Plassmann and Whitely (2003), Moody (2010)) support the general deterrence conclusion using different specifications and data, controlling for other gun control 11 The Orlando example is not unique. Publicized training programs in the use of firearms have led to a reduction in armed robberies in Highland Park, Michigan, drug store robberies in New Orleans, and grocery store robberies in Detroit (Kleck and Bordua 1983). When potential criminals become aware that potential victims might be willing and able to protect themselves with a gun, the increased perceived risk of committing a crime leads to the abandonment of at least some potential criminal acts. laws as well as endogeneity issues. The implication is that when potential criminals consider committing confrontational crimes in states with right-to-carry laws they recognize that there is a relatively high probability that a potential victim will be armed, raising the expected costs of confrontational crimes so fewer occur. These findings remain quite controversial, and there have been a number of studies with contradicting results (e.g., Dezhbakhsh and Rubin (1998); Ayres and Levitt (2003)). Indeed, Moody and Marvel (2008) surveyed the academic literature on rightto-carry laws and found that ten empirical studies supported the hypothesis that these laws reduce crime while eight found that the laws had no significant effect. Four years later, eighteen peer-reviewed studies were found that supported the hypothesis, ten reported no significant relationship, and results in one indicated that right-to-carry laws increase crime (Lott 2012). Whether the right-to-carry impact is significant or not, the basis for the hypothesis is essentially identical to the Ayres and Levitt (1998) Lojack study: when criminals realize that there is a relatively high probability that a potential victim has a concealed firearm or that an auto is equipped with the concealed Lojack devise, those criminals are less likely to attack victims and steal cars. Other aspects of private security could have similar impacts. Is a store equipped with hidden video cameras or plain clothes security officers or not? Is the bank teller protected by bulletproof glass? Does the residence have an alarm system? If more stores and homes employ difficult-to-observe security, the impact should be a general reduction in crime. The Lojack and concealed-firearm deterrence results presumably should not hold for highly visible investments in private security, and there are strong incentives to use highly visible security in order to maximize the specific deterrence effect. Security guards in banks and shopping malls wear uniforms, homes with alarm systems have signs posted in a prominent places warning the criminal away, video cameras on ATMs are clearly visible, and so on. In these cases, criminals may simply choose other less well-protected targets, so the impact of specialized private security is simply a substitution of unprotected targets and no reduction in overall crime. Given this reasonable argument, Macdonald, et al. (2012) findings regarding the impact of the University of Pennsylvania's private police force on crime in the surrounding area may be quite surprising: they found a 45-60 percent reduction in all crime incidence in the area due to the extra private policing provided by the university.12 This positive spillover effect could still be relatively localized, of course, as criminals may just move further away from the university to attack other targets. On the other hand, similar localized spillovers from the very large level of private security employment noted above could raise costs for many criminals by making it relatively difficult to find soft targets worth attacking (Benson and Mast, 2001). There are other reasons to expect general reductions in some kinds of crime as a consequence of private security. For instance, shopping malls and districts often employ private security. Indeed, one of the characteristics of the service they can offer is a relatively secure environment for shopping, eating out, socializing, and so on. The retailers, restaurants, bars, and other businesses willingly contribute to cover the costs of such security because the safe environment attracts more potential customers, raising their expected demand and revenues. Those customers actually pay for security, of course, because it is bundled with the goods or 12 The University of Pennsylvania is not the only institution of higher education with employing private security. In fact, as Blackstone and Hakim (2010, 365) pointed out, a substantial portion of the large increases in the use of private security over the last decade or two reflect responses to demands for protection of colleges and universities (other major sources of increasing demand are hospitals, along with hazardous facilities such as the 104 nuclear reactors and roughly 15,000 major chemical plants in the U.S., particularly since September 11, 2001). In 2009, 25 percent of US universities had their own sworn officer police departments (Blackstone and Hakim 2010, 365). Sworn university officers typically can make arrests without waiting for the public police. Such sworn officers can also do complicated investigations, requiring specialized knowledge of university-type issues. Rather than creating their own private police forces, however, many of the over 3000 colleges and universities in the United States contract with private security firms. For instance, one firm, Allied-Barton, provides security services to 90 US colleges and universities (Blackstone and Hakim 2010, 365). While security services were widespread among colleges and universities before the Virginia Tech massacre in 2007 where a student killed thirty-two students and faculty, many universities have increased security substantially since then. services they purchase. If a mall or business district gains an advantage through such investments, of course, competitive malls and business districts are likely to respond by making such investments too. Competitive pressures lead to the spread of private security, making it increasingly costly for potential criminals whose skill set leads them to search for targets among retail firms, shoppers, restaurant and/or bar patrons (e.g., shop-lifters, pick-pockets, car thieves robbers, rapists) find it increasingly costly to find vulnerable targets, and these rising search costs could reduce overall crime – that is, produce general deterrence.13 The rapid expansion in the use of private security14 suggests that this may well be occurring, and indeed, there is some evidence supporting this hypothesis. Zedlewski (1992) used a cross section of 1977 data from 124 SMSAs in an effort to analyze the effect of both public police and private security on the overall safety environment of communities. His control for private security was security employment by private security firms in the SMSAs. He found a significant negative impact of private security employment on crime. Zedlewiski (1992, 51) concluded "that greater levels of security personnel are associated with reduced levels of community crime. It suggests that investments in private security produces spillover benefits to the community at large. Crime is not only displaced; it is somewhat discouraged." The finding was not extremely robust, however, as an alternative measure of criminal activity was not related to private security employment. Furthermore, and perhaps more significantly, Zedlewiski did not consider the endogeneity issue, and his study also probably This process of generating general deterrence is quite different from the public criminal justice system’s process. The public sector tends to focus on responding after a crime is committed (Sherman 1983; Benson 2010; Benson 2011, 131-137), presumably under the assumption that spending resources on arrest and punishment provides an effective general deterrent. Private security focuses on preventing crimes against specific targets, but as such protection spreads, an unintended benefit can arises: criminals find fewer and fewer attractive targets, and perceive a rising price of crime due to the increased chances of being observed, so they are less likely to commit crimes in the first place. 14 See note 3. 13 suffers from substantial missing variable bias that often plagues cross-section analysis. Therefore, his conclusions must be considered with considerable caution. Benson and Mast (2001) examined the potential for missing-variable bias of Lott and Mustard’s (1977) results regarding right-to-carry concealed handgun laws, but in doing so they considered the potential deterrence impact of private security. The focus of the study was the possibility that right-to-carry laws and resulting firearm ownership could correlate with other potential private investments in security, resulting in Lott-Mustard estimates being biased upwards. In order to examine this issue, Benson and Mast added data on private security employment and private security firms from County Business Patterns, along with a number of instrumental variables to the original Lott-Mustard data set.15 They used NRA membership and lagged percentages of states Republican votes as instruments, along with lagged numbers of firms and employees in 23 industries that were expected to be sources of heavy demand for private security. County level weighted least square panel regressions were estimated with county and time fixed effects, as in Lott and Mustard, to alleviate other potential sources of missing variable bias. Benson and Mast did not find any evidence of bias in Lott and Mustard’s coefficients by adding controls for private security, but they did discover some evidence of a While the Census Bureau’s annual County Business Patterns reports private security employment, it only reports employment by private security firms. These firms protect many residential and business locations, but many other businesses and probably some residential communities choose to hire their own security personnel in house. For instance, 56.5 percent of the security reported by 4000 companies surveyed in 2005 was produced internally, by in-house security staff rather than through contracts with specialized security providers (ASIS Foundation 2005). While these findings do not represent the total percentage of private security personnel that are contract versus in house, they do illustrate that a substantial portion of the total population of private security personnel are employed by firms that are not specialized in security provision. After examining a number of different and at times conflicting sources of information, Strom, et al (2010, 4-4) reported that about 60 percent of total security employment in the U.S. is by specialized security firms and the remaining 40 percent is produced in house, although other estimates suggest very different percentages (Benson 2013). Given the lack of jurisdiction-level data on in-house security employment, the Benson-Mast study and this study are both limited to consideration of that portion of private security that is provided by firms specializing in security services. Thus, results are likely to be biased against finding any relationship. 15 general deterrence impact from private security as measured by the listed instruments used to predict private security establishments and employment per 100,000 people. The strongest results were for burglary and rape, as other crime rates tested with the instruments - Murder, total violent crimes, robbery, assault, total property crime, larceny, auto theft - did not produce robust results across plausible specifications. Since the primary purpose was to reconsider Lott and Mustard’s results with additional controls for private security, not to explicitly test the privatesecurity deterrence hypothesis, there were some important aspects of this study that may mask more significant deterrence relationships. Lott and Mustard 1977-1992 panel included data from all 3,054 counties in the U.S. for instance, and most counties are rural with small populations. Many have no private security firms at all, so a substantial portion of the observations were zeros, and the distribution was highly skewed. In addition, the source of the security data, County Business Patterns, indicates that the number of employees fall within a range when the number of establishments are positive but small, rather than providing the actual employment numbers.16 Therefore, using the Lott-Mustard sample of all counties meant that many observations from small counties that were not zero had to be estimated [this was done by multiplying the number of establishments in each of the size categories by the median number of employees in the size category]. These data issues may have masked substantial variation. Another issue had to do with the instruments employed. While some industries clearly do demand more security than others, for instance, the location of firms from at least some of those industries could attract more criminal activity to their area (i.e., “cause” local crime), 16 This is one reason for using a sample of urban-area counties. The problem also is partially mitigated by using the County Business Pattern data on the number of security firms, rather than employment. There also are other reasons for focusing on firm level data rather than employment data, as explained below, although results using employment data are also noted. making them inappropriate as instruments.17 Similarly, decisions to vote republican could be, at least in part, determined by local crime. Finally, Glaeser and Glendon (1998: 462) concluded that gun ownership tends to be most acceptable where people mistrust or are dissatisfied with public justice and have a “tradition of private retribution,” suggesting that NRA membership [and perhaps Republican votes] may reflect the relative portion of population that prefers to take responsibility for their own protection. In this case, it was expected that NRA membership could be highly correlated with private investments in crime prevention and detection, while not actually affecting crime directly. If so, it could be a good instrument. In fact, however, NRA membership was not related to the measures of private security employed by Benson and Mast. The impact of such issues could be quite significant given the limited impact of private security on many crimes found in Benson and Mast compared to the much stronger although relatively localized relationships found in Macdonald, et al. (2012). 3 Data A panel of 84 counties in 27 different states spanning 1998-2010 is used.18 Crime data were collected from the FBI's Uniform Crime Reports. County level private security number-ofestablishments data were obtained from the U.S. Census Bureau's County Business Patterns 17 Furthermore, firms in some of these industries may be relatively more likely to employ in-house security rather than contracting with security firms. See note 15. In fact, coefficients on many of the industries’ employment and establishment values were negative, suggesting that they may tend to use inhouse security, and several negative coefficients were significant, particularly in the security employment equation. 18 Various issues limited the size of the sample. While states’ current regulatory requirements are readily available, for instance, as are dates when those regulations were established, finding out what the regulations were prior to the change proved to be very difficult for some states. Crime data for some counties were also not reported every year, and in some cases, there were so few observations that the county was dropped from the analysis. In some cases where crime data are not available for all years in the sample, the observations that are available are still included. This resulted in an unbalanced panel, although but most counties in the panel are represented by a full time series. The goal was to find a set of states that had changes in the collected regulations during the time frame, and a set of states with no changes in these regulatory data that work as a control group. So, data was collected from the 17 states that had changes and a full panel could be collected, and 10 that did not have regulatory changes but had the full time panel. (CBP) online database.19 The simple correlation statistic between private security firms and the number of violent and property crimes are 0.8849 and 0.8303 respectively.20 These statistics suggest that the simultaneity problem between number of crimes and measures of private security may be substantial, as they are highly correlated. The following model attempts to break the assumed endogeneity by exploring the effects of exogenous shocks to private security in the form of regulatory changes, and the subsequent effect on crime. Regulation of licensing for private security is done at the state level. Private-security-regulations data were collected by examining and coding state statues and administrative codes accessed through Lexis-Nexis and West Law Next databases.21 Since the licensing is done at the state level, it is assumed to be an exogenous constraint to each county. Regulations vary dramatically across states, as noted below. Over the sample dates 19 http://www.census.gov/econ/cbp/. Data on employment by firms specializing in the provision of private security were also obtained, but there are several reasons for focusing on firms rather than their employment. These reasons are noted as the data are discussed and the model is developed. Nonetheless, empirical results using employment data rather than firm data were examined and are the results are noted below. In this context, while employment data for large counties listed by the CBP generally reports actual employment, some of the urban-area counties included in this analysis still have a relatively small number of private security firms in some size categories (information about firms, including employment are provided in categories based on firm size defined by numbers of employees; the categories are 0-19 employees, 20-99, 100-249, 250-499, 500-999, 1000-2499), and under these circumstances, CBP only provides the range in which the employment value falls for that category. When such observations are used, the mean of the reported range served as the data point. The potential for measurement error problems exist with this range data, however, one reason for preferring firm level data. County Business pattern annual employment and firm data is collected March 12 of every year. If a regulatory change happened after March 12 of any given year then the change is recorded for the following year. Private investigator data were also collected and tested but results are not reported here. Employment levels and establishments are small relative to the private security data, however, and the relationship between private investigators and crime is not as straightforward. After all, a substantial portion of private investigation work arises because of civil disputes, insurance claims, divorces, and other non-crime issues. Estimates using these data can be obtained upon request. 20 These statistics for private security employment are 0.8707 for violent crime and 0.8695 [see note 16 in this regard. 21 http://www.lexisnexis.com/en-us/home.page and https://1.next.westlaw.com/Session/SignOn.html?bhcp=1 (1998-2010), the regulatory criterion in 17 of the 27 states changed.22 Furthermore, a relatively large number of counties in the sample turned out to be from states that had multiple changes in the collected regulations. Regulatory data collected are expected to influence the cost of entry into the private security market for individuals who do not need to work under the employment of an existing firm (i.e., they may form their own firm).23 These data consist of: • the bond/insurance requirement necessary to obtain a private security license; • law-enforcement experience required (in years) to obtain a security license; • training necessary (in hours) to qualify for a licensure; • a dummy variable indicating whether a test must be taken to qualify for licensure. If an agency license was necessary to practice as an individual entity in the state, then the agency qualifications were collected. If a simple private security guard license was all that was necessary, then this is the data collected.24 All data collected assumed an unarmed security guard.25 These data are meant to establish a lower bound for entry into the marketplace. 22 State level private security regulation is not likely to respond to individual county crime levels from year to year. A state may change private security regulations in response to a statewide change in crime (and these changes might be driven by crime in a few large urban counties), but even this is not likely. Regulations in some states have changed over time, but relatively infrequently (certainly not annually). Thus the county level crime rate and the state imposed regulation are assumed to move independent of each other. 23 In some states proprietary security services were not subject to the collected criteria, but the measured regulations are applicable to all firms specializing in the provision of security. 24 An exception to this rule is Maryland where the licensing requirements applied to firms with 5 or more employees. Since most of the firms in the state have more than 5 employees these was the data used, it was assumed that this was practically the lower bound for entry. 25 Most private security personnel are not armed. Data quality varies considerably, but Cunningham and Taylor (1985, 20) reported that only three percent of the uniformed security personnel employed by Guardsmark, one of the largest national firms at the time, were armed, and they estimated that less than ten percent of the entire private security force was armed. While customers frequently request armed guards, security firms discourage many of these requests, both because weapons are generally not needed and because the firms face higher insurance costs when more of their employees are armed. More recently, the Graduate Institute of International Development Studies (2011, 111-116) provided estimates from the 70 countries they examined and explained that In practice, PSCs provide a number of services that do not require the use of firearms, such as risk Individual licensing in the form of trainee licenses or security guard licenses that were conditional on existing agency employment were not included. For the private security bond/insurance requirement, the minimum required insurance or bond (in some states both were required so the observation recorded was the summation of the two) was used as the data point. The experience necessary was based on a 2,000-hour work year. The training criterion was the combination of pre-license training and continuing education training required for licensure. These licensing requirements vary dramatically across states and over time:26 At the end of the data period ten states did not require either insurance or a bond; twelve required a bond but no insurance with bonds ranging from $2,500 to $50,000 and a median of $10,000; nineteen required insurance but no bond with insurance ranging from $50,000 to $2,000,000 and a median of $500,000; one required $300,000 in insurance and a bond of $10,000 while another required $1,000,000 in insurance along with a $5,000 bond; and the rest allowed licensees to choose either insurance or a bond, with values ranging from a low of $5,000 in insurance or a $5,000 bond up to combinations of $400,000 or $400,000 and $25,000 or $1,000,000. analysis and advisory services. In non-conflict settings, PSCs are most likely to use arms when guarding sensitive industrial, government, and bank sites, performing mobile patrols and emergency interventions (in case an alarm system is activated), or protecting convoys (such as cash-in-transit) and people (acting as bodyguards) …. it appears that PSCs worldwide hold somewhere between 1.7 and 3.7 million legal firearms. While the dearth of information explains such a broad range, this estimate remains significant in that PSCs hold only a small proportion of the global firearm stockpile of at least 875 million units. PSC holdings are comparable to the quantities of small arms held worldwide by gangs and armed groups (2 to 11 million units), but much lower than those of law enforcement (26 million), armed forces (200 million), and civilians (650 million). The study reported a range of estimates of firearms per PSC personnel for several countries. For instance, the ratio for Australia was between 0.02 and 0.15, while both India’s and China’s ratios were between 0.01 and 0.05. Their estimate for the U.S. ratio was estimated to be between 0.2 and 0.3, substantially higher than Cunningham and Taylor (1985). 26 Meehan and Benson (2013) explore potential reasons for such variation. During the data period, three states instituted insurance requirements and seven more raised the amount of insurance required, while four eliminated bonding requirements (three simultaneously increased the amount of insurance required) and two increased their required bond. At the end of the data period, seventeen states had no law-enforcement experience requirement to get a firm license while four states required five years of experience, three required four years, eleven required three years, eight required two years, and the remainder required one year or less. Over the data period, two states instituted experience requirements for the first time, while one raised the amount of experience required and one lowered its requirement. Only two states required law-enforcement experience for security employees, one mandating four years while the other instituted a one-year requirement during the data period. Twenty-three states had no training requirement to get a license and twenty-nine had no training requirement for private security employees. States with training requirements for a license mandated between one hour and eighty hours, while employee training requirements ranged from four to thirty-two hours in states with these regulations. Ten states instituted training requirements over the data period while seven instituted training requirements for employees, and four raised the amount of training needed for a license while two raised the hours required for employees and one eliminated the employee training requirement. Twenty states required tests to get a license (passing a test can substitute for the experience requirement in two states) and eight states required tests for security employees. Eleven states did not require tests, experience or training while eleven required all three, six states had experience requirements but no training or testing requirements, two had training requirements but no experience or testing mandates, two states required tests but no training or experience and the remainder had some combination of two of the three. Eight states actually did not have any insurance, bonding, experience, training, or testing requirements. Data for control variables on income and population are from the Bureau of Economic Analysis.27 4 Model Two Stage Least Squares (2SLS) models were estimated with time and county level fixed effects. The first stage tests the relationship between the regulatory barriers and private security levels. The results from this first stage allow evaluation of the relationship between private security and the regulations. The relationship between state regulations and county level private security establishments is tested.28 Bootstrapped clustered standard errors were used to correct for the downward bias of the normal OLS standard errors within panel estimation; see Cameron, et al. (2008). The first stage model for private security establishments is: PSfirmit = β0PSbondit + β1PStrainit + β2PSexperit + β3PStestit +Xitφ+Γt +Υi +εit 27 (1) http://www.bea.gov/ The estimated relationship between state regulations and county level private security employment are also noted. 28 where PSfirmit is the number of private security establishments in county i, in year t, PSbondit is the insurance and/or bond requirement in i and t, PSexperit is the experience requirement, Xit is a matrix of county and time level controls for population, income and unemployment, Gamma is the time fixed effect, Upsilon is the county level fixed effect, and varepsilon is the idiosyncratic error. The first stage results follow in Table 1. Note that the bond/insurance requirement significant and negatively related to private security establishments. The coefficient appears to be small, but the mean value of this requirement is $244,715.90 in this data sample. Therefore, the estimation suggests that a $200,000 increase in this requirement is associated with an average 3.3 percent decrease in the number of private security firms in a county. The coefficient on the test requirement also is negative and significant. Using the sample means to calculate average county level effects, the introduction of a mandatory test to qualify for licensure is associated with a 27.36% reduction in licensed private security establishments in a county, on average. The experience requirement also has a negative sign but it is insignificant. In contrast, the training requirement coefficient is positive coefficient, although it is not significantly different from zero. Table 1: First Stage Results Private Security Establishments (bootstrapped clustered standard errors in parenthesis) -.00000529*** Bond/Insurance (.00000224) Requirement .153435 Training (.1951731) Requirement -4.357442 Experience (3.342791) Requirement -8.760086*** Test Requirement (2.755347) .0001026** Population (.0000461) 1.344183* Unemployment (.7201675) Rate .0008528* Real Income Per (.0004922) .9002 1023 Capita R2 N *** significant at the 1% level, 2 tailed test ** significant at the 5 % level, 2 tailed test * significant at the 10% level, 2 tailed test Following Stock and Yogo (2001), an F-test of the joint significance of the four regulations in the regression is used to test the strength of the instruments. The resulting Fstatistic is 14.06, confirming that the instruments are sufficiently strong, and in conjunction with the results of the regression analysis,29 suggesting that the regulations are good candidates for instrumenting for private security firms.30 Using these regulations as instruments for a two stage least square fixed-effects model results in the following specification: ^ CrimeIncidenceit = β0PSfirmit + Xitφ + Γt + Υi + εit (2) Where CrimeIncidenceit is a crime statistic (property crime, violent crime, robbery etc.) from county i, in year t, PSfirmit ‘hat’ is the predicted value of Private Security firms from the first stage specification, and all other variables are consistent with the initial explanation for the first 29 The first stage model with private security employment, PSemployit , as the dependant variable produced Bond/Insurance Requirement Training Requirement Experience Requirement Test Requirement Population Unemployment Rate Real Income Per Capita R2 N Private Security Employment (bootstrapped clustered standard errors) -.0003465 (.0002134) 12.18353 (21.79907) -124.383 (359.5759) -416.1831** (202.7901) .073703** (.0030928) 67.59894 (74.46391) .0809355** (.0404941) .8866 1023 ** significant at the 5 % level, 2 tailed test 30 The F-stat for the regulations in the private security employment equation in note 26 is 6.79. Therefore, as an instrument for employment, these regulations appear to be weak, providing another reason for focusing on the firm-level relationships. stage regression. Crime incidence is the crime measure as opposed to crime rates often have been used in crime studies, in part because researchers have raised serious objections to empirically modeling crime with crime rates. For instance, Chamlin and Cochran (2004, 127) explain that The process of deflation, by partially controlling for the effects of population size on crime prior to the estimation of any multivariate models, misspecifies the causal relationship between population size and macro-level indicators of crime. It tends to overestimate the effects of the social, economic, and political conditions, while it simultaneously underestimates the importance of opportunities for social contacts (the number of people in a geographic area) on variations in the level of crime. In addition, Osgood (2000, 22) points out that When Populations are small relative to offense rates, crime counts cannot be ignored. Indeed for a population of a few thousand even a single arrest for rape or homicide may correspond to a high crime rate. ....Crime rates based on small counts of crimes present two serious problems for least squares analysis. First because the precision of the estimated crime rate depends on population size, variation in population sizes across the aggregate units will lead to violating the assumption of homogeneity of error variance.31 Second normal or even symmetrical error distributions of crime rates cannot be assumed when crime counts are small.32 Thus, the specification choice made here is to include population as an explanatory variable, and not to deflate the crime incidence by population. We assume that the state-level private security regulations are not correlated with number of public police in an individual county. Given that the instruments in this study are valid, they should correct for endogeneity from simultaneity issues and endogeneity from omitted variable bias, allowing the exclusion of public police.33 31 Fixed effects alleviate this problem. There are a few counties in this sample with populations under 70,000 where a murder is not an every year occurrence. The rare murder that does occur in these counties has relatively large ramifications for the crime rates. 33 Because public police face the same simultaneity issues as private security services, the public police would have to be instrumented in the crime determinant specification. Thus, the only way the estimation of the current instruments was invalid based on public police omitted variable bias, is if they were correlated with the instruments for public police. We have no reason to think that the state level private security regulations used here are correlated to the instruments used in the literature for measuring public police impact on crime. 32 Tables 2 and 3 report the two-stage-least-squares models for violent crimes and property crimes respectively using the predicted value of private security firms. First, note that coefficients on the population variable are significantly correlated with crime incidence at customary levels in five of the regressions, and at the ten percent level in four more. Thus supporting the Chamlin and Cochran (2004, 127) using crime rates rather than criminal the process of deflation, by partially “misspecifies the causal relationship between population size and macro-level indicators of crime” and “underestimates the importance of opportunities for social contacts (the number of people in a geographic area) on variations in the level of crime.” Table 2: Private Security and Violent Crime Total Violent Crime Murder Rape Robbery Predicted Security Firms Population Real Income per capita Unemployment Rate R2 F-Statistic N34 -167.6306** (85.40667) .0124231** (.0062802) .0042999 (.0602394) -3.337797 (83.17266) .6424 34.40 1007 Assault -1.18312 (.7751508) .0001713* (.0001015) .0000073 (.0001015) -2.478681 (1.794117) -4.467077*** (1.064403) .0005834*** (.0002121) .0005603 (.0020199) -4.108488 (3.403203) -24.21878* (13.42577) .0030721*** (.0010483) -.0153803 (.0146894) -23.53413 (22.76447) -139.0382* (75.29738) .0088362 (.0063561) .0212743 .0559889 26.66543 (83.28753) .7572 66.48 973 .8240 41.70 962 .8342 87.47 1007 .4638 21.18 1007 *** significant at the 1% level, 2 tailed test ** significant at the 5 % level, 2 tailed test * significant at the 10% level, 2 tailed test bootstrapped clustered standard errors in parenthesis Table 3: Private Security and Property Crime Total Property Crime Larceny Burglary Auto Theft Predicted Security Firms Population Real Income per capita Unemployment 34 -324.5291*** (120.4619) .0153386 (.018482) -.3278099 (.2241548) -507.8366 -118.4711 (84.47278) .0022395 (.0117689) -.2922219** (.145554) -291.9835 -71.6859*** (24.84459) .002637 (.0034158) -.0206175 (.0382955) 64.86634 -134.2103*** (46.76365) .0104472* (.0060081) -.0150983 (.0732028) -280.5452 Arson -5.026057** (2.031073) .0006978 (.0005461) .000363 (.0052023) -18.18282 The difference in the number of observations comes from the inconsistency of reporting some types of crimes; some counties do not record number of rapes, murders, arsons etc. for a given year but then do report this data in other years. Rate R2 F-Statistic N (456.4784) .0076 85.36 1007 (282.1506) .4709 93.33 1007 (60.63142) .1852 96.48 1007 (183.9019) (12.64736) .6678 32.26 1007 .6711 15.24 944 *** significant at the 1% level, 2 tailed test ** significant at the 5 % level, 2 tailed test * significant at the 10% level, 2 tailed test bootstrapped clustered standard errors in parenthesis Now consider the relationship between private security and crime.35 Negative and significant (at customary levels) effects of private security result in six of the ten crime categories - total violent crime, rape, total property crime, burglary, and auto theft. Results for two other crime categories, robbery and assault, suggest negative relationships too, although they are only significant at the 10% level. Only murder and larceny coefficients are not significantly different from zero (they do, however, have the expected negative signs). Using the sample means for both security firms and crimes, a ten percent increase in the number of predicted private security firms is associated with around a 10.2 percent decrease in total violent crimes,36 and a 3.2 percent decrease in total property crime37 within a county, on average. 35 The model was also estimated in an OLS model with private security establishments and without using the instruments. These results are included in the appendix. Relative to the OLS model, in the 2SLS model the magnitudes of the coefficients increase substantially for all crimes except arson, in several cases more than doubling. Five coefficients become significant at customary (5%) levels with the 2SLS that are not in the OLS models (total property, burglary, arson, robbery and assault); and the population becomes significant at customary levels in three equations (and at the ten percent level in two more), supporting Chamlin and Cochran (2004) and the use of crime incidence over rates. 36 The results for violent crime using private security employment rather than private security firms are: Total Violent Crime Murder Rape Robbery Assault -2.8761* -.0218554 -.657424** -.3536018 -2.456348* Predicted Security (1.648222) (.0164853) (.0311023) (.3004875) (1.403757) Employment .0166683* .0002124* .0005536** .0032378** .0128692* Population Real Income per capita Unemployment Rate R2 F-Statistic N (.0087571) .1044781 (.1208258) -60.43493 (109.1884) .5015 23.42 1007 (.0001237) .0002124 .0011638 -2.822318 (1.904607) .7200 65.19 973 (.0002565) .0025642 (.0029821) -5.883206 (4.350144) .7925 35.90 962 (.0015336) -.0060915 (.0213126) -33.22437 (22.50662) .7807 74.41 1007 (.0065725) .110294 (.0885877) -16.75771 (76.41336) .3549 13.86 1007 4 Conclusions If private security is even considered within the economics of crime literature, it is assumed, explicitly in a few cases but implicitly in most, that it does not have a general deterrence impact. The underlying argument is that private security hardens specific targets causing criminals to shift to (substitute) softer targets with no net reduction in crime. A few studies challenge this assumption, however, particularly for private security measures that are known to exist but cannot be directly observed, such as Lojack (Aryes and Levitt 1998) and concealed firearms (Lott and Mustard 1997, and others). Some studies also suggest the potential for positive spillover effects of private security that is likely to be observable (Zedlewski 1992, Benson and Mast 2001, MacDonald, et al. 2012), presumably because increases in private security raise the cost of finding targets for potential criminals. There are potential problems *** significant at the 1% level, 2 tailed test ** significant at the 5 % level, 2 tailed test * significant at the 10% level, 2 tailed test bootstrapped clustered standard errors in parenthesis While these results are consistent with Table 2 with regard to coefficient signs, the private security employment coefficients are generally less significant than the coefficients with private security firms. Recall note 27, however, and recognize that the instruments are relatively weak for the private security employment model. Therefore, less confidence can be placed on these results than those in Table 2. 37 The results for property crimes using private security employment are: Total Property Crime Larceny Burglary Auto Theft Arson -4.405359 -1.45774 -.9291213 -2.015156* -.0399216 Predicted Security (3.0171) (1.657433) (.6787538) (1.221264) (.0590796) Employment .0151526 .001084 .0022779 .0117675 .0004895 Population Real Income per capita Unemployment Rate R2 F-Statistic N (.0222305) -.2312082 (.2869304) -682.9808 (469.5428)) .0639 80.05 1007 (.0124566) -.2695534 (.1717044) -364.2811 (291.5965) .5247 90.02 1007 *** significant at the 1% level, 2 tailed test ** significant at the 5 % level, 2 tailed test * significant at the 10% level, 2 tailed test bootstrapped clustered standard errors in parenthesis (.0043628) -.0029616 (.0485503) 23.73423 (59.01626) .3483 103.5 1007 (.0096305) .0410348 (.107584) -342.236* (179.9584) .5661 25.99 1007 (.0006949) . -.0003975 (.006137) -22.03035 (14.06271) .6803 15.26 944 and/or limitations with these studies, however, so this study develops an instrumental variable approach to isolate private-security effects on crime using state-level licensing requirements to instrument county level-private security services for a sample of urban counties over the 19982010 period. The results provide additional support for the positive spillover effects of private security by showing that private security has a negative effect on many types of crime. But these findings are important on two dimensions, one that within our sample, evidence is provided supporting the position that private security does appear have positive spillover deterrence effects, which we are able to isolate away from the simultaneous link with crime. The second important conclusion provides evidence that regulators should be careful about the unintended consequences of these types of regulations, from a welfare perspective, if we assume that the violent and property crimes reduce aggregate welfare, these type of regulations could reduce overall welfare by increasing crime, as the under-investment in private security could result from these barriers to entry which could in turn lead to more crime. It appears that there is an under-investment in private security because providers are not able to charge for all of the benefits they generate, as concluded by Ayres and Levitt (1998). Given that greater investments in private security are desirable, then the relative effects of the regulatory inputs revealed in the first stages regression presented above become relevant. Private Security bond/insurance requirements and mandatory testing have negative relationships with the number of private security establishments in a county. The political economy aspect of these findings suggests that policymakers should be careful; these regulations apparently are significant barriers to entry that result in relatively high incidence of most crimes. 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Appendix Real Income Per Capita (2005 dollars) Population Private Security Firms Private Security Employment Violent Crime Incidence Property Crime Incidence PS Bond/Insurance Requirement PS Training Requirement (hours) PS Experience Requirement (years) Selected Summary Statistics Mean $36,534.83 Standard Deviation $9,293.45 819,058.4 32.02 2,566.45 1,255,456 59.12 5,326.63 5,241.21 32,106.6 244,715.9 10,206.73 43,398.52 318,427.7 10.76 18.38 2.07 1.65 OLS results Table 4: Private Security and Violent Crime with no IV Total Violent Crime Murder Rape Robbery Private Security Firms Population Real Income per capita Unemployment Rate R2 Wald stat N -113.5412** (52.3561) .0070847 (.0056572) -.0410698 (.0410698) -73.32722 (59.42744) .4538 41.07 1007 Assault -.73414916* (.3968074) .000127 (.0000795) -.0003971 (.000658) -3.026525 (2.27737) -2.501688** (1.115329) .0003632 (.0002319) -.0010861 (.0023108) -6.558927 (4.113692) -15.40923** (6.723225) .0022027 (.0013605) -.0227697 (.0013605) -32.93327 (23.21571) -95.21712** (44.7036) .0045112 (.003927) -.0154825 (.0394029) -30.03718 (53.11568) .7699 38.88 973 .8356 53.10 962 .8473 36.42 1007 .0144 29.93 1007 *** significant at the 1% level, 2 tailed test ** significant at the 5 % level, 2 tailed test * significant at the 10% level, 2 tailed test bootstrapped clustered standard errors in parenthesis OLS results Table 5: Private Security and Property Crime no IV Private Security Firms Population Real Income Total Property Crime Larceny Burglary Auto Theft -156.3843* (81.10056) -.0012568 (.0165909) -.4688482** 71.02784 (47.28651) -.002443 (.0102973) -.3320169** -24.48375 (16.80303) -.0020217 (.0027682) -.0602102** -60.87425*** (17.12822) .0032091 (.0068377) -.0766119 Arson -5.208217 (1.534152) .0007157 (.0005163) .0005172 per capita Unemployment Rate R2 Wald Stat N (.2090375) -725.4089 (443.1602) .6565 47.99 1007 (.133872) -353.373 (285.599) .6680 55.69 1007 *** significant at the 1% level, 2 tailed test ** significant at the 5 % level, 2 tailed test * significant at the 10% level, 2 tailed test bootstrapped clustered standard errors in parenthesis (.0288412) 3.78878 (53.45736) .7725 63.76 1007 (.058055) -375.4389* (206.3859) .0829 63.33 1007 (.0051822) -17.96131 (12.74587) .6701 91.11 944