The Invention of International Crime: a Global Issue in the Making, 1881
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The Invention of International Crime September 17, 2009 16:4 MAC/TIIC Page-i 9780230_238183_01_previii This page intentionally left blank The Invention of International Crime A Global Issue in the Making, 1881–1914 Paul Knepper University of Sheffield, UK September 17, 2009 16:4 MAC/TIIC Page-iii 9780230_238183_01_previii © Paul Knepper 2010 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No portion of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, Saffron House, 6-10 Kirby Street, London EC1N 8TS. Any person who does any unauthorized act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The author has asserted his right to be identified as the author of this work in accordance with the Copyright, Designs and Patents Act 1988. First published 2010 by PALGRAVE MACMILLAN Palgrave Macmillan in the UK is an imprint of Macmillan Publishers Limited, registered in England, company number 785998, of Houndmills, Basingstoke, Hampshire RG21 6XS. Palgrave Macmillan in the US is a division of St Martin’s Press LLC, 175 Fifth Avenue, New York, NY 10010. Palgrave Macmillan is the global academic imprint of the above companies and has companies and representatives throughout the world. Palgrave® and Macmillan® are registered trademarks in the United States, the United Kingdom, Europe and other countries. ISBN-13: 978–0–230–23818–3 hardback This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. Logging, pulping and manufacturing processes are expected to conform to the environmental regulations of the country of origin. A catalogue record for this book is available from the British Library. A catalog record for this book is available from the Library of Congress. 10987654321 19 18 17 16 15 14 13 12 11 10 Printed and bound in Great Britain by CPI Antony Rowe, Chippenham and Eastbourne September 17, 2009 16:4 MAC/TIIC Page-iv 9780230_238183_01_previii Contents List of Figures vi Acknowledgements vii Introduction 1 1 Technology of Change 12 2 World Empire 43 3 Alien Criminality 68 4 White Slave Trade 98 5 Anarchist Outrages 128 6 The Criminologists 159 Conclusion 188 Notes 194 Bibliography 225 Index 247 v September 17, 2009 16:4 MAC/TIIC Page-v 9780230_238183_01_previii List of Figures 1.1 Routes out of England via London, 1912 20 3.1 Nationality of Foreign-Born Prisoners in England, 1899–1903 84 4.1 Countries and Colonies Entered into the International Agreement for the Suppression of White Slave Traffic, 1907 115 5.1 Attempts to Assassinate Political Leaders, 1897–1902 131 vi September 17, 2009 16:4 MAC/TIIC Page-vi 9780230_238183_01_previii Acknowledgements Contributions to this book came from a number of people in different forms. Staff at several archives, libraries and special collections helped me locate documents: the British Library; National Archives (Kew); Lon- don Library; Women’s Library (London); National Library of Ireland; National Library of Malta; National Archives of Malta; Goldstein-Goren Diaspora Research Centre, University of Tel Aviv Library; Hartley Library, University of Southampton; Brotherton Library, University of Leeds; John Rylands Library, University of Manchester; as well as the University of Sheffield. The organisers of the 4th North South Criminology Confer- ence at Dublin Institute of Technology gave me the first opportunity to present the ideas developed here. Philippa Grand at Palgrave Macmillan made a number of helpful suggestions leading to clearer presentation of material. Colleagues in the Department of Sociological Studies and the Centre for Criminological Research at the University of Sheffield provided encouragement and advice at key moments. Finally, I would like to thank Cathryn Knepper: book writing would be a lot less fun otherwise. vii September 17, 2009 16:4 MAC/TIIC Page-vii 9780230_238183_01_previii This page intentionally left blank Introduction We live in the age of international crime. No longer is crime an issue for large cities or even national governments. Identity theft, illegal immigration, drug trafficking, terrorist attacks, human trafficking and financial fraud range across continents and hemispheres. News analysts, politicians and professors encourage us to grasp an internationalist view, to understand why crime belongs on the list of the world’s problems. Owing to modern technologies of communication and transportation, it seems clear that political instability, social divisions, pockets of poverty and ethno-religious conflicts anywhere jeopardise the security of peo- ple everywhere. Like climate change, turbulence in financial markets and public health threats, crime cannot be tackled by one government alone because our world has become so interconnected. But, perhaps we overestimate the novelty of our situation. Without a sense of his- tory, it is difficult to see things in perspective. When did awareness of international crime begin? Where do we look to find the beginning? More than 50 years ago, ‘[c]rime had clearly emerged within UN rhetoric as a social issue’. The United Nations’ interest began in 1947 when the Economic and Social Council placed crime on its agenda of social issues to be addressed. The council requested a report from the Social Commission on the prevention and treatment of offenders along with suggestions for ‘international action’. Three years later, the General Assembly passed a resolution for convening every five years a world congress on the prevention of crime and treatment of offenders. The first congress, in 1955, took place in Geneva with 521 delegates from 62 countries. UN measures concerning crime unfolded within the broader framework of ‘social defence’ which stressed the threat of crime to economic and social development. Crime was considered an imped- iment to world trade and as such ‘a social danger with international 1 September 17, 2009 12:56 MAC/TIIC Page-1 9780230_238183_02_int01 2 The Invention of International Crime consequences’. Yet crime was an international issue even before this. UN interest in crime after the Second World War followed efforts during the interwar period taken by the League of Nations.1 The League of Nations, which existed from 1919 until 1938, had sev- eral technical organisations which had to do with aspects of crime. These included permanent advisory committees on opium and other dangerous drugs, distribution of obscene literature and the white slave trade. The means by which young women entered into the international sex trade attracted the League’s attention from 1921 when it called the first international meeting on ‘white slavery’. Following this meeting, the League Council created an advisory committee to become known as the Advisory Committee on the Traffic in Women and Children. White slavery was one of the leading social issues of the 1920s as evidenced by widespread interest in the League’s activities. The League’s 1927 Report of the Special Body of Experts on Traffic in Women and Children became an international bestseller (for a policy document) when its original print run of 5000 sold out within weeks. About this same time, Evelyn Waugh published his first novel, Decline and Fall, a comic satire about the white slave trade. Waugh could evoke humour out of such a grim subject matter because his readers were so familiar, perhaps even weary, of the anti-trafficking campaign.2 About the same time, police forces in Europe placed crime on the international agenda. The collapse of the Austro-Hungarian Empire in the wake of the Great War worried police in Vienna. The inter- mingling of peoples from the former Habsburg territories and social dislocation resulting from the conflict encouraged the ‘migration of criminals’ and the ‘development of transfrontier crime’. Police in the United States also worried about the international situation. In their attempt to enforce laws related to Prohibition, they contended with an unprecedented increase in organised crime involving operatives who made use of European connections.3 Mathieu Deflem shows how the threat of international crime supplied the police with a rationale for transnational cooperation. To justify the need for collaboration across national borders, the International Criminal Police Commission (ICPC) insisted that a new class of criminals had appeared in the wake of rapid social change and technological progress following the Great War. International police cooperation, enabled by the latest technologies for communication and transportation, presented an essential defence against this new generation of criminals: swindlers and forgers, hotel and railway thieves, white slave traders and drug traffickers. At the ICPC’s Vienna congress of 1923, participants advocated measures to September 17, 2009 12:56 MAC/TIIC Page-2 9780230_238183_02_int01 Introduction 3 expedite extradition procedures and pursued communication through telegraph and radio.4 Crime was, then, already an international issue by the 1920s. There are some good reasons for situating the internationalisation of crime from a moment in the nineteenth century. Inklings of global- isation can be seen in mid-century, when the ‘revolutionary change’ introduced by railways brought about a radical shift in behaviour and mentality.