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1.1. What Is Investigation? Toolkit_cover 2/22/12 6:30 PM Page 1 Toolkit www.dcaf.ch on Police Integrity Toolkit on Police Integrity DCAF The Geneva Centre for the Democratic Control of Armed Forces (DCAF) is an international foundation whose mission is to assist the international community in pursuing good governance and reform of the security sector. The Centre develops and promotes norms and standards, conducts tailored policy research, identifies good practices and recommendations to promote democratic security sector governance, and provides in-country advisory support and practical assistance programmes. DCAF gratefully acknowledges the support of the Norwegian Ministry of Foreign Affairs in the production of the Toolkit. The views expressed are those of the authors alone and do not in any way reflect the views of the institutions referred to or represented within this Toolkit. Cover pictures (top to bottom, left to right): © OSCE/Mikhail Evstafiev © 2007 Joi Ito. Licensed under the Creative Commons Attribution 2.0 Generic license © Danish Police (politi.dk) © 2009 Beijing Patrol. Licensed under the Creative Commons Attribution 2.0 Generic license © KEYSTONE/AP Photo/Schalk van Zuydam © UN Photo/Christopher Herwig ©DCAF, 2012 All rights reserved. ISBN 978-92-9222-190-4 Design, layout and printing: Valeur, Slovak Republic Published by DCAF (Geneva Centre for the Democratic Control of Armed Forces) PO Box 1360 1211 Geneva 1 Switzerland www.dcaf.ch Acknowledgements Pierre Aepli, Senior Police Advisor DCAF (until March 2011) initiated the project, developed the concept and coordinated the writing of the nine chapters of the toolkit. The review and editing phase was led by Marc Remillard with the assistance of Reto Brunhart and Martha Baillargeon. We would like to thank the following in-house contributors for their valuable comments and recommendations: Daniela Abeztout, Alero Okorodudu, Sophia Hoffmann. Many thanks are also owed to our external contributors: Kenneth Kostyo for his senior editing assistance and Cherry Ekins for her proofreading. Toolkit on Police Integrity The Toolkit on Police Integrity aims to assist police services in designing effective measures to curb police corruption, increasing their ability to fight crime, improving public security and strengthening the rule of law and public trust in the police. The Toolkit contains nine chapters. 1. Introduction: corruption and policing 2. Values, rules and behaviour 3. Organisation 4. Supporting police officers facing ethical questions 5. Internal control 6. External oversight and control 7. Investigation 8. Capacity building 9. Instruments Table of Contents About the Toolkit............................................................................................................................12 Acronyms......................................................................................................................................19 Chapter 1 Section 1. Introduction to Chapter 1 ................................................................................................21 Section 2: Definitions related to police corruption ..............................................................................22 2.1. What is corruption? ...................................................................................................22 2.2. What are police? .......................................................................................................23 2.3. What is police culture? ...............................................................................................23 2.4. What is police corruption? ..........................................................................................24 2.5. What is systemic corruption?.......................................................................................25 2.6 Types of police corruption and other inappropriate behaviour...........................................26 2.7. Other types of police misconduct and unethical (inappropriate) behaviour .........................28 Section 3: The importance of tackling police corruption and inappropriate behaviour ..............................31 Section 4: Building an ethical police service ......................................................................................33 4.1 Methods for tackling police corruption and inappropriate behaviour ..................................33 4.2. Avoiding potential dangers of privatisation and outsourcing in policing .............................37 4.3. Responsibilities for tackling corruption .........................................................................37 4.4. Where should the focus be?........................................................................................39 4.5. Conditions for efficient anti-corruption measures & difficulties encountered?...........................................................................................................40 Section 5: Improving police behaviour in specific contexts ..................................................................42 5.1. Post-conflict countries ...............................................................................................42 5.2. Transitional countries.................................................................................................44 5.3. Developing countries ................................................................................................47 5.4. Developed countries .................................................................................................49 Section 6: Successful anti-corruption strategies .................................................................................51 6.1. Singapore................................................................................................................51 6.2. Hong Kong ..............................................................................................................52 Section 7: Conclusions and lessons learned – Chapter 1 ......................................................................53 5 TOOLKIT ON POLICE INTEGRITY Chapter 2 Section 1: Introduction to Chapter 2 ................................................................................................59 1.1. What is organisational culture? ....................................................................................59 Section 2: Why are values, rules and behaviour important in the struggle against corruption? ....................63 2.1. Change and its impact on organisational culture ............................................................63 2.2. One or several cultures? .............................................................................................64 2.3. Positive and negative aspects of police culture...............................................................65 Section 3: How values, rules & behaviour can be integrated into the struggle against police corruption?......66 3.1. Improving the well being of personnel .........................................................................67 3.2. Developing a process of integrating culture into the struggle against corruption .................67 Section 4: Integrating values, rules and behaviour in specific contexts ...................................................79 4.1. Post-conflict countries ...............................................................................................79 4.2. Transitional and developing countries ..........................................................................80 4.3. Developed countries .................................................................................................81 Section 5: Implementation.............................................................................................................83 5.1. Management support ...............................................................................................83 5.2. Personnel involvement ..............................................................................................84 5.3. Challenges and obstacles in the elaboration of a code of conduct .....................................84 Section 6: Conclusions and Recommendations – Chapter 2 .................................................................86 Chapter 3 Section 1: Introduction to Chapter 3 ................................................................................................91 1.1. Structure of Chapter 3 ...............................................................................................91 1.2. What is an organisation?.............................................................................................92 Section 2: Why is the question of organisation important in the struggle against corruption? ....................94 2.1. The organisation is an arena........................................................................................94 2.2. The organisation creates a culture ................................................................................94 2.3. The organisation is responsible to the society and to its members .....................................95 2.4. Organisation systems and processes can have an impact on corruption .............................95 2.5. Organisational weaknesses open the door to misconduct ................................................95 2.6. Measures to enhance capability of individuals to resist corruption must be taken at organisational level ................................................................................................95
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