Global Issues Series. General Editor: Jim Whitman. Titles include:

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1 Global Issues Series General Editor: Jim Whitman This exciting new series encompasses three principal themes: the interaction of human and natural systems; cooperation and conflict; and the enactment of values. The series as a whole places an emphasis on the examination of complex systems and causal relations in political decision-making; problems of knowledge; authority, control and accountability in issues of scale; and the reconciliation of conflicting values and competing claims. Throughout the series the concentration is on an integration of existing disciplines towards the clarification of political possibility as well as impending crises. Titles include: Berhanykun Andemicael and John Mathiason ELIMINATING WEAPONS OF MASS DESTRUCTION Prospects for Effective International Verification Mike Bourne ARMING CONFLICT The Proliferation of Small Arms Roy Carr-Hill and John Lintott CONSUMPTION, JOBS AND THE ENVIRONMENT A Fourth Way? John N. Clarke and Geoffrey R. Edwards (editors) GLOBAL GOVERNANCE IN THE TWENTY-FIRST CENTURY Malcolm Dando PREVENTING BIOLOGICAL WARFARE The Failure of American Leadership Toni Erskine (editor) CAN INSTITUTIONS HAVE RESPONSIBILITIES? Collective Moral Agency and International Relations Brendan Gleeson and Nicholas Low (editors) GOVERNING FOR THE ENVIRONMENT Global Problems, Ethics and Democracy B. K. Greener THE NEW INTERNATIONAL POLICING Roger Jeffery and Bhaskar Vira (editors) CONFLICT AND COOPERATION IN PARTICIPATORY NATURAL RESOURCE MANAGEMENT Ho-Won Jeong (editor) GLOBAL ENVIRONMENTAL POLICIES Institutions and Procedures APPROACHES TO PEACEBUILDING Alexander Kelle, Kathryn Nixdorff and Malcolm Dando CONTROLLING BIOCHEMICAL WEAPONS Adapting Multilateral Arms Control for the 21st Century W. Andy Knight A CHANGING UNITED NATIONS Multilateral Evolution and the Quest for Global Governance

2 W. Andy Knight (editor) ADAPTING THE UNITED NATIONS TO A POSTMODERN ERA Lessons Learned Kelley Lee HEALTH IMPACTS OF GLOBALIZATION (editor) Towards Global Governance GLOBALIZATION AND HEALTH An Introduction Nicholas Low and Brendan Gleeson (editors) MAKING URBAN TRANSPORT SUSTAINABLE Catherine Lu JUST AND UNJUST INTERVENTIONS IN WORLD POLITICS Public and Private Robert L. Ostergard Jr. (editor) HIV, AIDS AND THE THREAT TO NATIONAL AND INTERNATIONAL SECURITY Graham S. Pearson THE UNSCOM SAGA Chemical and Biological Weapons Non-Proliferation THE SEARCH FOR IRAQ S WEAPONS OF MASS DESTRUCTION Inspection, Verification and Non-Proliferation Andrew T. Price-Smith (editor) PLAGUES AND POLITICS Infectious Disease and International Policy Michael Pugh (editor) REGENERATION OF WAR-TORN SOCIETIES David Scott THE CHINESE CENTURY? The Challenge to Global Order Marco Verweij and Michael Thompson (editors) CLUMSY SOLUTIONS FOR A COMPLEX WORLD Governance, Politics and Plural Perceptions Bhaskar Vira and Roger Jeffery (editors) ANALYTICAL ISSUES IN PARTICIPATORY NATURAL RESOURCE MANAGEMENT Simon M. Whitby BIOLOGICAL WARFARE AGAINST CROPS Global Issues Series Series Standing Order ISBN (outside North America only) You can receive future titles in this series as they are published by placing a standing order. Please contact your bookseller or, in case of difficulty, write to us at the address below with your name and address, the title of the series and the ISBN quoted above. Customer Services Department, Macmillan Distribution Ltd, Houndmills, Basingstoke, Hampshire RG21 6XS, England

3 The New International Policing B. K. Greener Massey University, New Zealand

4 B. K. Greener 2009 Softcover reprint of the hardcover 1st edition 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 her right to be identified as the author of this work in accordance with the Copyright, Designs and Patents Act First published 2009 by PALGRAVE MACMILLAN Palgrave Macmillan in the UK is an imprint of Macmillan Publishers Limited, registered in England, company number , 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 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 ISBN (ebook) DOI / 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. Library of Congress Cataloging-in-Publication Data Greener, Beth K., 1977 The new international policing / Beth K. Greener. p. cm. (Global issues series) Includes bibliographical references and index. 1. Police International cooperation. 2. Criminal justice, Administration of International cooperation. 3. Law enforcement International cooperation. 4. Crime prevention International cooperation. I. Title. HV7921.G dc

5 For Anateira and Tamaira

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7 Contents List of Figures Acronyms Acknowledgements viii ix xiv Chapter 1 Introduction 1 Chapter 2 A Brief History of International Policing 8 Chapter 3 Kosovo and East Timor 32 Chapter 4 RAMSI 56 Chapter 5 Afghanistan and Iraq 69 Chapter 6 The New International Policing in Theory 92 Chapter 7 The New International Policing 110 Notes 129 Bibliography 169 Index 189 vii

8 List of Figures 3.1 Kosovo Police Service Organisational Structure of Policing Efforts in Timor-Leste RAMSI Organisation Chart 58 viii

9 Acronyms AAP Australian Assisting Police (Papua New Guinea) ADB Asian Development Bank ADF Australian Defence Force AFP Australian Federal Police AIA Afghan Interim Administration ANA Afghan National Army ANAP Afghanistan National Auxiliary Police ANCOP Afghan National Civil Order Police ANDS Afghan National Development Strategy ANP Afghan National Police APEC Asia Pacific Economic Cooperation ASEAN Association of South East Asian Nations ASEANAPOL ASEAN Police Chiefs ATA Afghan Transitional Authority BCPP Bougainville Community Policing Project BPS Bougainville Police Service B/RCTs Brigade (Army) and Regimental (Marine) Combat Teams (Iraq) CAP Community Auxiliary Police CENTCOM Central Command CEP Community Empowerment and Local Governance Project (East Timor) CEPOL European Police College CIVPOL UN Civilian Police (pre-2005 name change to UNPOL) CPA Coalition Provisional Authority (Iraq) CPATT Civilian Police Advisory Training Team CSFP Common Security and Foreign Policy (EU) CSTC-A Combined Security Transition Command Afghanistan DCAF Democratic Control of Armed Forces DDR Disarmament Demobilisation Reintegration DEA Drug Enforcement Agency DMU Detainee Management Unit (East Timor) DoD Department of Defense DPKO Department of Peacekeeping Operations (UN) ECHO European Commission Humanitarian Office ix

10 x Acronyms ECP eprt ERRF ESDP ESIF EU EULEX EUPOL FALINTIL FBI F-FDTL FPU FRY ICC ICITAP IDG IDP IFOR INC INP INTERFET INTERPOL IPAC IPM IPMT IPS IPSF IPTF IPU ISAF ISF ISG JEMB JSDF KFOR KLA KPC KPS KVM Enhanced Cooperation Program Embedded Provincial Reconstruction Team (Iraq) EU Rapid Reaction Force European Security and Defence Policy European Security and Intelligence Force European Union EU Rule of Law Mission (Kosovo) European Union Police Mission to Afghanistan Armed Forces for the National Liberation of East Timor Federal Bureau of Investigation FALINTIL-Forcas de Defesa de Timor Leste or Timor Leste Defence Force Formed Police Units Federal Republic of Yugoslavia International Criminal Court International Criminal Investigative Training Assistance Programme (US) International Deployment Group (AFP) Internally Displaced Persons Multinational Implementation Force (Kosovo) Iraqi National Congress Iraqi National Police International Force East Timor International Criminal Police Organisation International Policing Advisory Council International Police Monitor (Haiti) International Peace Monitoring Team Iraqi Police Service Interim Public Security Force (Haiti) International Police Task Force (Bosnia) Integrated Police Units International Security Assistance Force (Afghanistan) International Security Forces (East Timor) International Service Group (New Zealand Police) Joint Electoral Management Board (Afghanistan) Japanese Self-Defence Forces Kosovo Force Kosovo Liberation Army Kosovo Protection Corps Kosovo Police Service Kosovo Verification Mission

11 Acronyms xi MACP MINUGUA MINURSO MINUSTAH MIPONUH MNF MNSTC MOOTW MP MSU NATO NZDF NZPOL OAS OECD OEF ONUC ONUMOZ ONUSAL OSCE PAP PCC PDD PICP PNC PNG PNTL POLRI PPF PRPI PRT RAAF RAMSI RCMP RNZAF RPNGC Military aid to the civil power UN Verification Mission in Guatemala UN Mission in Western Sahara UN Stabilisation Mission in Haiti UN Civilian Police Mission in Haiti Multinational Force (Haiti) Multi-National Security Transition Command Military Operations Other Than War Military Police Multinational Specialised Unit North Atlantic Treaty Organisation New Zealand Defence Force New Zealand Police Organisation of American States Organisation for Economic Cooperation and Development Operation Enduring Freedom Operations des Nations Unies au Congo (United Nations Observer Mission in Congo) Operations des Nations Unies au Mozambique (United Nations Operation in Mozambique) Operations des Nations Unies au El Salvador (United Nations Observer Mission in El Salvador) Organisation for Security Cooperation in Europe People s Armed Police (China) Police Contributing Country Presidential Decision Directive (US) Pacific Islands Chiefs of Police Policia Nacional Civil (El Salvador) Papua New Guinea Policia Nacional de Timor Leste (East Timor/Timor Leste) Indonesian Police Force Participating Police Force (Solomon Islands) Pacific Regional Policing Initiative Provincial Reconstruction Team (Afghanistan) Royal Australian Air Force Regional Assistance Mission to Solomon Islands Royal Canadian Mounted Police Royal New Zealand Air Force Royal Papua New Guinea Constabulory

12 xii Acronyms RRP RRR RRU RSIP SAARC SARPCCO SCAP SCO SCU SFOR SIPF SMART SNP SPU SRSG SSR SWAPOL TCN TIP TNI TPIU UN UNAMA UNAMET UNAMIR UNAVEM UNCJS UNCRO UNDP UNEF UNFICYP UNHCR UNITAF UNMIBH UNMIH UNMIK UNMISET UNMIT UNOSOM Rapid Reaction Police (Angola) Reform, Restructuring, Rebuilding Rapid Response Unit (INTERFET) Royal Solomon Islands Police South Asian Association for Regional Cooperation Southern African Regional Police Chiefs Cooperation Organisation Supreme Commander for Allied Powers Shanghai Cooperation Organisation Serious Crime Unit (East Timor) NATO-led Multinational Stabilisation Force (Bosnia) Solomon Islands Police Force Support, Monitoring, Advising, Reporting, Training Somalia National Police Stability Police Units Special Representative of the Secretary General Security Sector Reform South West African Police (Namibia) Troop Contributing Nation (ISAF Afghanistan) Transition Integration Programme Tentara Nasional Indonesia (Indonesian Army) Trafficking and Prostitution Investigation Unity (UNMIK) United Nations UN Assistance Mission to Afghanistan UN Assistance Mission to East Timor UN Assistance Mission in Rwanda UN Verification Mission Angola UN Criminal Justice Standards UN Confidence Restoration Operation (Croatia) United Nations Development Programme UN Emergency Force (Gaza) UN Force in Cyprus UN High Commissioner for Refugees Unified Task Force (Somalia) UN Mission in Bosnia and Herzegovina UN Mission in Haiti UN Interim Administration Mission in Kosovo UN Mission in Support of East Timor UN Integrated Mission in Timor-Leste UN Operation in Somalia (I and II)

13 Acronyms xiii UNOTIL UNPA UNPOL UNPREPDEP UNPROFOR UNSC UNSCR UNTAC UNTAES UNTAET UNTAG UNTEA USCON USIP UN Office in Timor Leste UN Protected Area UN Police (post-2005) UN Preventive Deployment Force (Macedonia) UN Protection Force (Croatia/Bosnia) United Nations Security Council United Nations Security Council Resolution UN Transitional Authority in Cambodia UN Transitional Administration in Eastern Slavonia, Baranja and Western Sirmium UN Transitional Administration in East Timor UN Transition Assistance Group (Namibia) UN Temporary Executive Authority (West New Guinea) US Constabulary (West Germany) US Institute for Peace

14 Acknowledgements I would like to first of all thank Palgrave Macmillan for taking this research project on. I would also like to thank those who invited me to a number of very useful workshops in 2007 including: a workshop on future directions for Pacific Policing at the behest of the Pacific Islands Chiefs of Police (PICP) in March; the Third UN International Policing Advisory Council (IPAC) meeting in Canberra in August as hosted by the UN Police Division and the Australian Federal Police (AFP); a roundtable on Australian and Economic Union (EU) policies towards the Pacific region hosted by the National Europe Centre with help from the School of Diplomacy at the Australian National University (ANU) in Canberra and a workshop on Community Policing in Three Dimensions in December as co-hosted by Regulatory Institutions Network (REGNET) ANU and the Berkeley Centre for Criminal Justice. From October to November 2007 I had the opportunity to give talks to the Liu Institute at the University of British Columbia and to War Studies, King s College, London and would like to thank those who joined in some lively discussions there. During this trip to the northern hemisphere I also had a chance to talk to a number of officials and serving personnel from North Atlantic Treaty Organisation (NATO), the European Commission, the European Council and UN Police Division in New York and would like to thank all those who gave their time and opinions but who did not necessarily want to be named. Also thanks to the AFP for letting me observe Pre- Deployment Training (PDT) in mid-2008 and to the New Zealand Police (NZPOL) for many useful discussions, both of which greatly helped me better understand operational aspects of policing abroad. Chapter 6 is a revised version of an article published as B.K. Greener-Barcham, Crossing the Green or Blue Line? Exploring the Military-Police Divide, Small Wars and Insurgencies, 18/1, March 2007, pp that is reprinted by permission of the publisher (Taylor & Francis Ltd, journals). Every effort has also been made to secure permission for use of the figures reproduced here. More specifically (and my deepest apologies if I have forgotten anyone), I would like to offer a very big thank you to: Jon White, Jacqui Goodwin, Cam Ronald, Tony McLeod, Tony Annandale, Hamish McCardle, Roly Williams, Andrew Carpenter, Jared Rigg, Rolf Landgren, Gerard Beekman, Kevin Steeves, Ugo Solinas, Mark Kroeker, Andy Hughes, Tony xiv

15 Acknowledgements xv Murney, Juani O Reilly, Abby McLeod, Robbie Langdon and the PDT team at AFP, John McFarlane, Adam Bycroft, Greg Fry, Peter Grabovsky, Bill Tow, Pauline Kerr, Paul Keal, Bu Wilson, Eirinn Mobekk, Alice Hills, Eboe Hutchful, David Bayley, Andrew Goldsmith, Otwin Marenin, Paul Kernaghan, Brian Job, Richard M. Price, Andrew Mack, Rachel Kerr, James Gow, Robert Perito, Jamie Shea, Andrew Budd, Predrag Avromovich, Benoit Dupont, Samuel Tanner, Philip Cunliffe, Arrigo Velicogna, Martin Smith and David Brown. In more general terms I would also like to send out a thank you to Lionel Banfather for letting me sleep in his front living room in London, and to recognise the generosity of Debika Pal and Claire Trivedi for a similar favour in Washington DC. Thanks to Massey University for grants to help release me from teaching duties to complete the manuscript, and to my School for taking me on in a year when I had many trips to and fro. Thanks too to my immediate family, Mum, Dad and my sister Kate for support along the way. And last of all thanks to Will for, amongst numerous other things, asking the hard questions in a very gentle way. Any mistakes are, however, of course mine and mine alone.