WOODROW WILSON CENTER UPDATE ON THE AMERICAS

NO. 5 JULY 2002 Police Reform in Latin America: Observations and Recommendations HEATHER H. WARD Assistant Director of International Programs, Vera Institute of Justice

hroughout Latin America, crime has make police more become a top concern to citizens, effective through T politicians, international donors, the the use of new tools media, and police. As democracy consolidates and technology. throughout most of the hemisphere, public safe- Although there is ty has replaced concerns about national securi- a growing body of ty, political violence, and economic stability in police research and many countries. Crime and violence have evaluation on Latin grown steadily: between 1984 and 1994, the America, it is still homicide rate in the region increased 40.9%,1 small and relatively Heather Ward is a member of the Working Group on Citizen and fear of crime seems to be outpacing its unknown. Of the Security in Latin America. actual increase. Citizens concerned about crime analysis completed, often want a powerful state—and strengthened time has been noted to be one of the distinguish- law enforcement agencies—to combat the ing features of the reforms; most processes of problem with a heavy hand. In many develop- police reform are recent and unfinished. ing democracies, of Latin America and other Nevertheless,it is possible to compare what we regions, citizens are often willing to cede more do know about some of the police reform efforts power to police today than these forces even currently underway. Below are brief profiles of wielded during periods of authoritarianism.2 recent or ongoing processes of reform within In theory and practice, only the police have police organizations in three countries: Brazil, the explicit mandate of providing the broadly- Argentina, and Chile. In all three cases, relatively defined concept of public safety.They are the new democratic governments have been trying to sole force that are on duty 24 hours a day,seven cope with the same police organizations that for- days a week, making them the agents of first merly served military regimes. response for any problem of disorder, however minor or severe. Since the late 1990s, there have CRIME AND PUBLIC SECURITY IN been a swell of projects and programs to reform ARGENTINA:BUENOS AIRES PROVINCE police forces, representing a second wave of ini- In December 1997, then-governor of Buenos Seguridad Ciudadana/Citizen Security tiatives in countries’ transitions to democracy. Aires Province, Eduardo Duhalde, took drastic State officials and civil society institutions—as measures to reinvent the province’s public secu- well as police leaders—want a security force rity system. Crime was on the rise, that is in consonance with the rest of society. public fear of crime was outpacing the actual The proposals for how to do this have been increase, and illegal activity permeated the diverse: some aim to turn police into crusaders police ranks. In a span of 90 days, Duhalde dis- for human rights; others want to flatten the missed more than 200 of the highest ranking hierarchical chain of command; some try to officers of the Bonaerense (as the province’s LATIN AMERICAN PROGRAM scrap the existing police institution and start police force is known), divided it into 18 over; and lastly there are others that attempt to administrative police departments, created four WOODROW WILSON CENTER UPDATE ON THE AMERICAS

separate police forces to perform different tasks, It is still not clear whether the Governor will com- and named the province’s first Minister of Justice mit his administration to implementing a new and Security, a civilian, to whom the police would ethos for respectful and effective police work. report. Duhalde declared the police, as well as the rest of the criminal justice system, out of date and POLICE REFORM IN BRAZIL:ADVANCES IN incapable of responding to the demands of modern THE STATE OF MINAS GERAIS life.3 In 1985, the Military Police of Minas Gerais—rec- While Duhalde’s measures tackled the problems ognizing that a new era of democracy would require of police corruption and abuse, they did not deal changes in the orientation and strategies of the head-on with the problem of crime. Just a few police—formed a partnership with the Federal months after setting the reforms in motion, the University of Minas Gerais (UFMG) to provide administration’s efforts were discredited when higher education for the police. Over time, that indicators revealed there had been no reduction in partnership has endured and been strengthened.The crime. Duhalde decided to replace his Minister of University’s Center for Studies of Crime and Public Justice and Security and began emphasizing crime Security (CRISP, in Portuguese) has recently reduction over cleaning up the police force. worked with the Military Police in the city of Belo Two years after launching his "intervention," Horizonte to implement "Policing with Results," a Duhalde failed to win the presidential nomination project aimed at boosting professional skills and giv- and ceded his office to Carlos Ruckauf, who ran ing area commanders responsibility for crime reduc- on an anti-crime, "zero tolerance" platform. Upon tion. taking office, Ruckauf named Aldo Rico, a former The UFMG and João Pinheiro Foundation, in Seguridad Ciudadana/Citizen Security 2 military general with a well established record for genuine partnership with the police, have played a human rights abuses, as Minister of Justice and critical role in police reform in Minas Gerais. Using Security. More recently, Ruckauf separated the the expertise of sociologists and specialists in public Ministry of Justice from the Ministry of Security administration from both institutions, the Military and appointed a retired police official to lead the Police have tried to build a more professional, tech- Ministry of Security—a move that weakened civil- nical, and soundly administered service for citizens.4 ian control of the police. Where “Policing with Results” has been most suc- Today, the problems of crime and insecurity cessful is in identifying specific patterns or trends in persist in Buenos Aires, and the ability of the crime and taking action to disrupt them. For exam- provincial police to address those problems has ple, with the new crime analysis techniques that been increasingly important to Governor Ruckauf. CRISP helped introduce, the Belo Horizonte Military Police were able to detect a troubling pat- The Latin American Program serves as a bridge between the tern of taxi robberies. The police then adopted a United States and Latin America, encouraging a free flow of series of measures to prevent them—such as safety information and dialogue between the two regions. The inspections for taxis on well-traveled routes—and Program also provides a nonpartisan forum for discussing quantitatively measured the change. Taxi robberies Latin American and Caribbean issues in Washington, D.C., and for bringing these issues to the attention of opinion plummeted. Claudio Beato notes that overall crime leaders and policy makers throughout the Western hemi- figures for the city have not changed much since sphere. The Program sponsors major initiatives on “Policing with Results” was introduced, although Decentralization, Citizen Security, Comparative Peace the rate of increase has slowed.5 Processes, Creating Community in the Americas, U.S.- The long-standing relationships between the Brazilian relations and U.S.-Mexican relations. Military Police and these two academic institutions The Woodrow Wilson Center's Citizen Security Project is have produced slow changes rather than the supported by a generous grant from the Hewlett overnight turnaround that many police reformers Foundation. seek. However, with time, the police have institu- Latin American Program Director: Joseph S. Tulchin tionalized the reforms, making them more difficult Citizen Security Project Coordinator: Heather A. Golding to reverse. As Beato signals, the Minas Gerais Editing and Layout: Craig M. Fagan Military Police are still at the beginning of a long process and there is much left to do. So far, the most Seguridad Ciudadana/Citizen Security 3 However, in 9 Police reform must Police 8 Although it is difficult to Public perception of the police perception Public The locus for police reformThe locus for police is the . 3. Society. Civil 2. or Government. State 1. Police Modifications within the police organization such cases the tendency is often to propose radical such cases the tendency is often to propose problems.Whatsolutions for sometimes intractable illustrates the potential Aires happened in Buenos of politician-led police reform.problem A change in fund- result in the political administration may shifts that cancel out,ing cuts and programmatic or reverse,even the reforms. offer something positive for police,offer something positive and that is best secu- the public ranks from when multiple assured rity participate forces in the reforms. without the sup- initiatives sustain state-sponsored police,port from the state can confer political and,legitimacy initiatives on new when necessary, allocate funding for them. When crime or police misconduct is severe, and when the departamental is weak, these problems to address the role initiative to be amplified. have of the state may want.reforms State-sponsored those in such as province,Aires Buenos is great when there even will behind the changes,political can be stalled of the ranks of multiple involvement without the police organization. course, Of situation is every different; of actors is no specific combination there that will guaran- of involvement level or minimum reforms.tee the success of police historical For and political reasons, for all possible it is not always three, of these actors, a combination or even to America. in Latin together work police organization itself.police organization in a deficient police Even organization, technical some members will have expertise about crime control, knowl- extensive work, they where edge of the communities and experience organizations—and running their own their to improve will simply be motivated many of professionalism.self-image and level Ultimately, police determine whether reforms succeed and endure, carry must since they them out and live changes. with the resulting leadership and the courage to adopt strong require policies. led innovative when changes are But even police commanders,by parts other of the organiza- try them. to block tion may and crime—whether exaggerated—is often or real : ” ? EFORM UADRANTE POLICE REFORM IN LATIN AMERICA IN LATIN REFORM POLICE R C LAN ECOMMENDATIONS OLICE R P :“P HILE C What exists now,What exists says, he is a better Police-led reforms,Police-led such as in Chile, 6 7 ASE OF C It is not yet possible to discuss any outcomes of to discuss any possible It is not yet HO IS INVOLVED IN ONCLUSIONS AND HE functioning apparatus for adopting strategic apparatus for functioning or operational reforms in the future. Police reform the efforts by can be strengthened Police actors: multiple of involvement the police force itself;society (including NGOs, civil research organizations, groups, community the media, and citizens);individual or state and government authorities. C T crime per capita a low rate Although Chile enjoys countries to other America, Latin in relative increas- on pressure put ing crime and fears of attacks have national uniformedthe 36,500-member police force, the Carabineros, strategiesnew to look for to crime. and control prevent the fall In of 2000, the the "Plan began implementing Carabineros or Quadrant Plan,Cuadrante," ele- which has three ments: on of the Carabineros presence 1) increased the street, management resource human 2) revised systems, of measuring perform- way and 3) a new ance based on a set of objective,indica- quantifiable tors. does not call for a more Although the plan community-oriented policing style, some observers it is the first step in bringingsay and the Carabineros closer together.communities Others warn that the the Carabineros’plan only increases capacity to carry repressive—law out traditional—even strategies.enforcement the Plan Cuadrante because it is so new. However, engaged in a have factthe mere that Carabineros and modernize their institution to improve process years is a step that seemed far only a few less possible ago. in bringing those interested For about more open, accountable, and democratic policing in Chile, the Carabineros’ if it fails to pro- plan—even police work—gives change in front-line duce much them hope that the institution is willing to respond ideas. to new important thing he and his colleagues have learned important have colleagues he and his thing a change in of introducing way effective is that an with cooperation is through police organization universities. can better address citizens’can better address concerns when they asso- or through society (directly consult with civil them) to find out what they ciations that represent W 4 Seguridad Ciudadana/Citizen Security Gilbert, AlmaGildenhorn,DavidF. Girard-diCarlo,MichaelB.Goldberg,William E. Funger, GregoryM. Gallo,ChrisG.Gardiner, EricGarfinkel,BruceS.Gelb,Steven J. David Eller, SimFarar, SusanFarber, CharlesFox,Barbara HackmanFranklin,Morton William T. Coleman,Jr., MichaelD.DiGiacomo,SheldonDrobny, F. SamuelEberts III, J. Cafritz, NicolaL.Caiola,RaoulCarroll,Scott Carter, AlbertV. Casey, PeterB.Clark, Joseph C.Bell,RichardE.Berkowitz,A.Oakley Brooks,CharlesW. Burson,Conrad Andersen, CyrusA.Ansary, Charles F. Barber, LawrenceE.BathgateII,JohnBeinecke, Steven Kotler, President.DianeAboulafia-D'Jaen,Charles S.Ackerman,B.B. Daniel L.Lamaute,DorisO.Matsui,ThomasR.Reedy, NancyM.Zirkin Private CitizenMembers:JosephA.Cari,Jr., CarolCartwright, JeanL.Hennessey, Tommy G.Thompson,Secretary, U.S.DepartmentofHealthandHumanServices. Department ofState;LawrenceM.Small,Secretary, SmithsonianInstitution; Paige, Secretary, U.S.Department ofEducation;ColinL.Powell,Secretary, U.S. States; BruceCole,Chair, NationalEndowmentfortheHumanities; RoderickR. James H.Billington,LibrarianofCongress;JohnW. Carlin,ArchivistoftheUnited Joseph B.Gildenhorn,Chair;StevenAlanBennett,Vice Chair. PublicMembers: T THE WOODROWWILSONINTERNATIONAL CENTERFORSCHOLARS ubr1 00 p 11-12. pp. 2000, number 1, 10, AFramework vol. for Action," PolicingPolicing: &Society, 2 Organization data). calculationsbasedonPan Health American ing (authors’ publication forthcom- Golding,Woodrow Wilson CenterPress, A. editedby HugoFrühlingandJoseph TulchinState, withHeather Democracyand the CitizenSecurity, Violence inLatin America: Implications ofSocialandDomestic and Violence," inCrime ConsequencesandPolicy RiskFactors, Violent Americas? 1 ENDNOTES enforcement strategies tobettertargetcrime. enforcement strategies have changedtheirdeployment and patterns thepolice Basedonthisinformation, data. crime Policehas helpedtheMilitary collectandinterpret andPublic SafetyattheFederal UniversityCrime theCenterforStudiesof forexample, Minas Gerais, In andskills. whocanlendexpertise researchers, preventionchants around crime activities. tial ofthesegroups toorganizeresidents andmer- Police overlook thepoten- andpoliceabuse. crime about public concerns tions thatcanarticulate there are many NGOsandcommunity organiza- toprocesseszens tocontribute ofpolicereform, thatmeetsociety’slic security expectations. and allows stateofficialstoshapepoliciesforpub- watch groups helpspolicetargettheiractivities committeesandneighborhood local citizens’ Consultationwith the impetusforpolicereform. orsn nrw ar uii n ihe hfe,"The Mayra BuvinicandMichaelShifter, Andrew, Morrison, tn,CrsohrE n ete .ad "Democratic andHeatherH.Ward, E. Christopher Stone, Police with alsostandtogainfrom partnerships While there may befew ways foraverage citi- Lee H.Hamilton,Director BOARD OFTRUSTEES WILSON COUNCIL WOODROW WILSONCENTERUPDATE ONTHEAMERICAS Martin Wolff, JosephZappala, RichardS.Ziman Ruth Westheimer, PeteWilson,Deborah Wince-Smith,HerbertS.Winokur, Jr., Paul Stephenson, WilmerThomas,NormaKlineTiefel, MarkC.Treanor, ChristineM.Warnke, Kenneth Siegel,RonSilver, William A.Slaughter, JamesH.Small,ThomasF. Shepherd, GeorgeP. Shultz,RajaW. Sidawi,DebbieSiebert,ThomasL. Rogers, OttoRuesch,B.FrancisSaul,III,AlanSchwartz,Timothy R.Scully, J.Michael Richardson, MargaretMilnerLarryD.Richman,EdwinRobbins,RobertG. Park, GeraldL.Parsky, Michael J. Polenske,DonaldRobertQuartel,Jr., J.JohnL. Merrill, JeremiahL.Murphy, MarthaT. Muse,DellaNewman,JohnE.Osborn,PaulHae McCarthy, StephenG.McConahey, DonaldF. McLellan,J.KennethMenges,Jr., Philip Levy, DavidLink,S.Mandel,JohnP. Manning,EdwinS.Marks,JayMazur, Robert Christopher J.Kennan,MichaelV. Kostiw, WilliamH.Kremer, DennisLeVett, HaroldO. Brenda LaGrangeJohnson,ShellyKamins,EdwardW. Kelley, Jr., AnastasiaD.Kelly, Hotung, FrancesHumphreyHoward,JohnL.DarrellE.Issa,JerryJasinowski, Grayson, RaymondA.Guenter, GeraldT. Halpin, EdwardL.Hardin,Jr., CarlaA.Hills,Eric 9 8 7 6 5 4 1998. December1-2, in Buenos Aires, Argentina organizedby theCentro deEstudiosLegalesySociales Aires," working in paperpresented attheseminaronpolicereform ypolicialenlaprovinciama delsistemadeseguridad deBuenos 3 America. policing practicesinthedemocraciesofLatin would goalongway toward advancing better andcitizens— government officials, police leaders, shared amongreform-minded experiences—when Lessonsfrom allthese how well they are working. withoutknowingmenu ofpolicestrategies forsure continue todrawstill others from thesameold and havemanders offered theirown innovations, Somepolicecom- lored themtothelocalrealities. they anderror have andthrough trial tai- policing, suchascommunity developed inothercountries, haveregion adoptedelementsofpolicingmodels Somepoliceorganizationsinthe Latin America. there are many approaches in topolicereform Clearly, theimpactofpolicereforms. measuring ofevaluations there isstilladearth growing rapidly, the bodyofliterature is onpolicingintheregion While they are hard tocomeby inLatin America. but ences would beusefulforpolicereformers, an acl,"eorca euia úlc oií.Larefor- pública ypolicía. seguridad "Democracia, Marcelo, Saín, tn n ad .19. Stone and p. Ward, See Stoneand Ward. Ibid. 2001. May 14, electronic correspondence, Claúdio, Beato, 2000. November 6, Claudio, Beato, tn n ad .30. Stone and p. Ward, The lessonsfrom experi- different policereform www.wilsoncenter.org Washington, DC20004-3027 1300 PennsylvaniaAvenue, NW One Woodrow WilsonPlaza