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Strategic Police Decision-Making in Tackling Organised Crime

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Strategic Police Decision-Making in Tackling Organised Crime STRATEGIC POLICE DECISION-MAKING IN TACKLING ORGANISED CRIME Constructing and prioritising organised crime problems in the UK Maria Pournara School of Social Sciences Cardiff University This thesis is submitted in fulfilment of the degree of Doctor of Philosophy Abstract Law enforcement agencies have to constantly make decisions about which crime problems to tackle. In the context of policing organised crime, these decisions can be extremely complex as strategic decision-makers have to make proactive judgements about priorities in a politically charged environment with finite resources. Yet most studies on this topic are concerned with intelligence products and their presentation in threat assessments, and they tend to downplay the significant role of a wide array of factors that influence strategic decisions. This perspective also overlooks the role of processes of social construction in setting priorities and how they can explain rises and falls of organised crime problems within strategic agendas. This study’s main aim is to explore how police organisations set strategic priorities to tackle organised crime. In doing so, it employs a multi-method research design and a longer-term perspective. By applying Best’s (2016) natural history model of social problems’ process the study examines changes and developments in the construction of organised crime problems over time, as well as the factors that drive these changes. A historical review of British organised crime policing reveals trends of centralisation and amalgamation, as well as a pattern of frequent institutional changes. These changes, however, facilitate ongoing processes of organisational inheritance which renders each agency dependent on its predecessors’ priorities and activities. Content analysis of annual reports published from 1993-2017 by the four national organised crime fighting agencies in the UK is used to map out patterns and trends of change in strategic priorities; interviews with former strategic decision-makers are then used to illuminate behind-the-scenes processes of change. Findings demonstrate the various pathways of crime problem construction: some problems emerge and develop into high priorities, some remain persistent (in either high or low ranks) through time, and some fall from strategic agendas; crucially, these are not clear, linear trends but reinforce Best’s assertion of (2016) ‘cycles of concern’ across time. Finally, findings from a thematic analysis of interviews and media highlight complexities in decision-making processes by unveiling and discussing factors that shape priority-setting in national agencies (legislation, political pressure, signal crimes, mass media, performance indicators, organisational path dependency, intra-organisational dynamics). Importantly, the thesis yields policy-relevant results as both its empirical findings and conceptual approach can be useful for critically assessing new problems. Acknowledgements This thesis was made possible through the funding of the Dawes Trust. I would like to extend my gratitude to the Dawes Trustees for their generous support. To my supervisors, Professors Martin Innes and Michael Levi, thank you for the stimulating conversations, your guidance, constructive feedback, and your patience as I was navigating through one of the most challenging times of my life. I am extremely grateful for your support. I am also grateful for the invaluable support of my former progress reviewer Janna Verbruggen – your kind words of encouragement have kept me sane more times than I can count. I sincerely thank you both you and Luca Giommoni, my current progress reviewer, for reading my work and providing helpful feedback. To Professor Tom Hall, thank you wholeheartedly for the pastoral support when I needed it, I truly appreciate it. I would also like to express my heartfelt thanks to all those who have participated in my research. They have generously offered me their time and provided me with fascinating insights, shared their experiences and helped me understand a world that was entirely foreign to me. To my dear friends in Greece who have been by my side, both literally and figuratively, since forever – I miss you every day and I am truly thankful for your support. To my amazing partners in crime at the University of Southampton and to Mr Phil Palmer who generously provided me with invaluable support and guidance through numerous proposals and PhD applications during my first year in the UK as an MSc student – thank you wholeheartedly. Cardiff has been home since I moved here for my PhD mainly because of my amazing friends in the Museum Place office. Fryni, Simon-boy, Pip, Mark, Sam, other Sam, Charlie, Lydia, Claire, Grace, Melissa, Liv, Jonathan, Ipek, Vicky, Wanda, and everyone else who has been part of my journey (you know who you are), thank you for everything – the help, the breaks, the laughter and for making Cardiff ‘home’. My parents, Nikos and Katerina, words cannot describe what you mean to me. You have always quielty done everything needed and more for me to reach my goals and I hope you know that so much of what I’ve achieved, including this thesis, is down to your love and support. Σας ευχαριστώ και σας αγαπώ πολύ. Last but not least, to my ‘family supervisors’ – Filippos, thank you for always being there for me, for reading drafts, for believing in me much more than I do, for always making me smile, for making it all possible. Anastasia, μπουκίτσα μου, I’ve finished my ‘story’; thank you for making it worthwhile. i Table of contents Introduction ................................................................................................................................ 1 1. Chapter 1: A review of empirical, methodological and conceptual aspects of research into organised crime policing ............................................................................................................ 6 Introduction ................................................................................................................. 6 International developments that influence organised crime policing in the UK: concepts and policymaking .................................................................................................... 7 Questioning rational decision-making in tackling organised crime .......................... 11 Conceptualising organised crime priorities as ‘real’ or constructed problems ......... 19 The history of ‘making’ social problems: taking a long-term view of setting strategic priorities to tackle organised crime ...................................................................................... 26 Concluding remarks .................................................................................................. 30 2. Chapter 2: Methodology .................................................................................................. 31 2.1. Introduction ............................................................................................................... 31 2.2. Research aims and questions ..................................................................................... 31 2.3. Research strategy....................................................................................................... 33 2.3.1. Epistemological positioning............................................................................... 33 2.3.2. A moderate social constructionist framework ................................................... 34 2.3.3. A socio-historical approach to policing organised crime in the UK .................. 35 2.4. Research design ......................................................................................................... 38 2.4.1. A hybrid (fixed and flexible) research design.................................................... 38 2.4.2. A multi-method qualitative study ...................................................................... 39 2.5. Methods and data collection ...................................................................................... 41 2.5.1. Documentary analysis ........................................................................................ 41 2.5.2. Elite semi-structured interviews ........................................................................ 52 2.5.3. Media analysis: a thematic analysis of newspaper articles ................................ 55 2.6. Ethical considerations ............................................................................................... 58 2.7. Concluding remarks .................................................................................................. 59 ii 3. Chapter 3: A historical review of building institutions and constructing the organised crime problem in the UK ......................................................................................................... 60 3.1. Introduction ............................................................................................................... 60 3.2. The growing policing response to organised crime in the UK .................................. 61 3.3. The early years of organised crime policing in England and Wales ......................... 69 3.3.1. Specialist squads and the policing of a local problem ....................................... 69 3.4. Building a national response to organised crime ...................................................... 72 3.4.1. The role of NCIS in setting priorities and constructing the organised crime problem 73 3.5. Operational policing of
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