MONGOLIA SURVEY: COMMUNITY-ORIENTED POLICING IN MONGOLIA

Transcription

1 MONGOLIA SURVEY: COMMUNITY-ORIENTED POLICING IN MONGOLIA Ulaanbaatar, Mongolia

2 MONGOLIA SURVEY: COMMUNITY-ORIENTED POLICING IN MONGOLIA

3 CONTENTS Introduction Objectives Survey methodology A. NARRATIVE REPORT. Introduction. perceptions of the police. External factors affecting police. Internal factors affecting police B. DISCUSSION AND ANALYSIS OF THE QUESTIONAIRE RESULTS. Background. Issues of greatest concern. The law and order situation. functions. Resources. Citizens understanding of the role and responsibilities of the police. Public perceptions of police performance. Problems facing the police. Relationships between the community and police. Prospects for enhanced community-police relations C. PERCEPTIONS IN URBAN AND RURAL AREAS (CROSS TABLES) response. How would you describe the law and order situation in Mongolia?. Have you noticed any recent changes in the government s commitment to protecting law and order?. What do you consider to be your principal function as a police officer?. Do you see yourself as response. What do you consider to be the most serious problem facing Mongolia today?. How would you describe the law and order situation in Mongolia?. Have you detected any government commitment to protecting law and order?. Which of the following statements best describes the role of police in your locality?. How much do you have in the capacity of the police to prevent or resolve crime?

4 Oriented Policing in Mongolia COMMUNITY ORIENTED POLICING IN MONGOLIA Introduction This survey on -Oriented Policing was conducted in Mongolia between March and April. The report consists of two main parts: one is an analysis of questionnaires administered to law enforcement officials, and the other to community and civil society representatives; the second is a narrative report based on information gathered from interviews, participant observation and general observation that enhanced the questionnaire data. The latter part of the report is a summation of the analysis and provides discussion related to the nature of the relationship between the police and the community in survey sites. Objectives The main objectives of the survey were to examine and assess the present relationship between the police and target communities, and to identify the strengths and weaknesses in these relationships. The survey aims to diagnose police-community relations, and to suggest possible ways of enhancing and strengthening relations in order to improve dialogue and the provision of policing services in urban and rural communities across Mongolia. This survey contributes directly to efforts initiated by the Ministry of Justice and Home Affairs (MOJHA) to reform the enforcement and police services in Mongolia. Survey methodology Several methodologies were employed in conducting the survey. Data was gathered through a questionnaire, participant interviews and observation, as well as through secondary source information taken from previous surveys, books and published materials. The questionnaires were administered after enumerators had spent time in the target communities and among the police, with whom trust, legitimacy and credibility were established. Such observation and participation helped to ensure the quality and accuracy of information gathered through the questionnaire, and enabled enumerators to obtain valuable additional information that otherwise would not have been elicited. For example, most police said that they were committed to their work, which in practice proved to be an overstatement. In addition to neighbourhood police, lawyers, prosecutors and high-ranking police officials were also interviewed. Fifty police and members of the community, representing a cross-section of society, took part in the survey. Non-random sampling was used in order to ensure geo-

5 Oriented Policing in Mongolia graphic and socio-economic diversity of the respondents. The General Department was consulted on the selection of participants. The survey questionnaire was modelled on prior samples used by The Asia Foundation in Bangladesh and Indonesia, and was adapted for use in Mongolia in consultation with the Ministry of Justice and Home Affairs, police, and social scientists.. Introduction A. NARRATIVE REPORT The narrative report is comprised of three parts. The first assesses and examines community opinions and perceptions of the police. According to the survey results, citizens generally base their perceptions upon gossip and rumor, and sentiments are not uniformly based upon personal experience or empiric evidence. Negative perceptions generally prevail, and prevent people from accurately assessing police performance in the context of available resources: staff, equipment and budget. The second part of the report examines the social circumstances affecting police: The external factors that impact police performance, but over which they have little or no control. The third and last component of this report addresses internal factors within the police department which can be strengthened in order to improve performance, and over which they have some control.. perceptions of the police The overall community perception of the police was poor: percent of citizens interviewed said the police served rich people, percent said police served their own interests, and percent said that the police failed to serve the interests of anyone. Only percent said that the police respected the rights and interests of all citizens. Such negative views and opinions are manifest in low credibility and legitimacy of the police forces, and contribute to disrespect exhibited by citizens, which complicates police-community relations.. External factors affecting the police A range of external influences affect police-community relations, and the functioning of the police department. These are influences that are beyond the control of the police, and include political, economic, ethical and legal issues. Remains of the totalitarian regime The most pervasive factor affecting the police department and the functioning of the police are the vestiges of the old communist regime. In, Mongolia made the transition from a centralised Soviet system to a free-market democracy. However, rem-

6 Oriented Policing in Mongolia nants of the old system remain entrenched in the law-enforcement sector, meaning that the police department is still undergoing a transformation from a state enforcement body to a service organization. enforcement role during democratization. During the communist era, the police had the title of sergiilekh (meaning security ), despite being a state enforcement agency. Since, there have been a number of changes, including an increase in the number of police officers, and changing the police title from sergiilekh to tsagdaa (meaning to guard, control ). However most of the changes that have taken place have reinforced the police s enforcement role, rather than promoting the concept of public service. No legal provisions stipulating the relationship between the police and citizens. and lawyers complain that there are no detailed legal provisions that articulate specific policies regarding the relationship between the police and citizens. Existing police procedures, for instance, conflict with other legal provisions. Such inherent conflicts can lead to problems for police officers in the execution of their duties. Interviewees identified the quandary when, for example, they stop a person in the street and ask to check their credentials, but are refused. Generally the police will escort that person to the nearest police station. But in so doing, they are violating a person s human rights, and are in breach of articles in the Constitution. There are numerous legal conflicts facing the police that ultimately impact upon their relationship with the community. Since there is no specific legal standard, police tend to opt for enforcement and control, rather than public service. For example, police routinely make people wait for long periods outside their offices, because there is no single regulation or service standard that stipulates how long people can be kept waiting before they are attended to., too, have to contend with reciprocal problems from citizens. According to police, people routinely refuse to obey police directives, and are focused solely on their rights, rather than on their obligations. This was identified as one of the most common conflicts between police and the public.. Internal factors affecting police culture The largest police training institution is the Mongolian Academy. As in many such institutions, the police academy operates within a hierarchical structure, with age often the most salient determinant of seniority. Those more senior in years have been informally empowered to dictate to and direct junior officers. Rank is closely correlated with age, not merit.

7 Oriented Policing in Mongolia The tendency towards age-bias hierarchy presents problems in police - community interaction when police project similar hierarchy upon the public, which may not generally be bound by the same strictures. Nevertheless, age hierarchy is a traditional part of Mongolian culture, and police often revert to this system of deference for age, which can negatively affect interactions with youth, and in turn, youths perceptions of the police. In interviews, youth and younger age cohorts often commented upon police heavy handedness. personnel evaluation system is product, or revenue-driven. Another factor affecting the police is the concept of supply and production. This term refers to the different types of operations in which an organization is engaged. In the case of police, this includes the number of people who have been fined, the number of crimes investigated, and the number of arrests that have been made. officers work is evaluated on the basis of the number of such products they supply. Such evaluation criteria means that police officers are compelled, for example, to issue frivolous tickets in order for them receive favourable performance reviews. Consequently, if crime-control is successful and the incidence of fines or arrests decreases, it would reflect poorly on officers performance, when in actuality a drop in the crime rate should be commended as a reflection of a well-functioning police department and effective police officers. There is also a financial component to the evaluation system. The revenue generated by police officers goes into the police department account, hence it is incumbent upon police officers to supplement departmental coffers. According to one officer interviewed, one Ulaanbaatar city district sets a quota, directing police to contribute a certain percentage of its funds. This places the police department in a situation in which it is obligated to generate its own revenues; an obligation that is then passed on to police officers and subsequently to the public. The performance evaluation intrinsically emphasizes enforcement rather than service, and creates impetus for corruption and bribery. Perceived and reported corruption is treated separately in Section., but among the contributors to perceived or real corruption may be the performance evaluation system itself. There is a tendency among police to highlight the number of cases they have solved in order to demonstrate to the public that they are doing a good job. However, they do not publicize the number of unsolved petty crimes. As such, it is difficult to accurately determine crime statistics. The omission of such information may undermine public regarding the police s ability to solve petty crime, and may explain why the public is reluctant to report crime.

8 Oriented Policing in Mongolia Neighbourhood police The neighbourhood police consists of men aged from - who generally have completed at least secondary education. Close to half of all police officers had completed college certification courses, or university studies at the undergraduate level. In Addition, police complete at least three months of basic police training. Previously, physical capabilities were a job prerequisite. Recently, emphasis has been placed on psychological testing as part of the selection process. Fifty-six percent of the police involved in the survey were neighbourhood police; traffic police made up percent. The public s negative perceptions were generally associated with traffic and neighbourhood police, those that they come in contact with most frequently. Complaints against police There are two predominant types of complaints that are lodged against the police: complaints concerning criminal activity that are referred to the General Prosecutor s Office, and complaints concerning police morality, which are passed on to the relevant authorities within the police department. In Uvs aimag, the lawyers who were interviewed as part of the survey said that most complaints against the police were in relation to breaches of citizens human rights, and the use of excessive force. Official reports show numerous instances in which police have been dismissed after complaints have been investigated. However, there are also instances identified during the survey in which terminated police officers were reinstated in other jurisdictions. In one example, a police officer separated from his job in one aimag was re-employed as a police officer in another aimag. This illustrates the need for better national police communication, and the development of a unified information network. Organizational weaknesses An examination of the geographic allocation of police officers shows that in some areas the ratio of police to citizens is relatively high. However, this isn t the case in the ger districts that are expanding on the outskirts of Ulaanbaatar, where the population density is increasing, and where there is a growing need for a greater police presence as a result of spiralling social problems. For example, zadgai in the Gants Khudag area - an area that has attracted a large number of migrants from the countryside - is home to, residents. However, it is served by only four police officers, who work in two shifts. On average, - incidents reportdly take place each night in Gants Khudag which is beyond the coping power of the four officers. Such understaffing is also evident at the soum level. On average, there are, residents per soum who are served by just two police officers. This, too, is insufficient to adequately deal with crime in these areas. Population density must be taken into consideration when determining the distribution of police staffpower.

9 Oriented Policing in Mongolia B. DISCUSSION AND ANALYSIS OF THE QUESTIONAIRE RESULTS. Background.. People, districts and provinces covered in the survey Based upon consultation with the General Department, the majority of the police survey focused on the Songino-Khairkhan and Bayanzurkh districts of Ulaanbaatar, which have higher rates of immigration and crime than other districts. In rural areas, the survey was conducted in Ulaangom in Uvs aimag, and in Choibalsan in Dornod aimag. : Districts and Provinces : Districts and Provinces Most of the police involved in the survey were from the Bayanzurkh and Songino- Khairkan districts, with and percent respectively. Of the community members surveyed, percent were from Songino-Khairkhan district and percent were from Bayangol district. : Area : Area

10 Oriented Policing in Mongolia percent of the community members and percent of the police were from suburbs of Ulaanbaatar where crime rates are high; percent of the citizens and percent of the police were from the central area of Ulaanbaatar... Age percent percent of the total number of citizens surveyed were aged from -, while percent of the police were younger, aged from -. An other percent of police surveyed were aged from -. members in the predominant age cohort were those who had the most interaction with police... Gender percent of the citizens and percent of the police interviewed were male. Males were also found to have more interaction with police.

11 Oriented Policing in Mongolia.. Education percent of the citizens and percent of the police had completed secondary school or better. A small fraction of police officers, %, had not completed secondary school. percent of the citizens were educated at the secondary school level or lower, and according to the survey had the most active interaction with police. No formal education Elementary school certi cate Incompleted secondary school certi cate Complete secondary school certi cate College certi cate University certi cate Incompleted secondary school certi cate Complete secondary school certi cate College certi cate University certi cate.. Employment and income of community members who participated in the survey percent of the citizens were working for salary/wages/income; the remaining percent did not work for an income. percent of the citizens had household income less than MNT, per month, which is less than the national average. The people in this income bracket experienced higher incidence of crime. Are you working for salary/wages/income? Total household monthly income

12 Oriented Policing in Mongolia Employment rate classified in terms of how much they interact with the police Government, NGO, Private Sector employee Taxi&mini bus drivers, markettraders, street vendors unemployed&others Housewife, students, pensioner percent of the citizens worked for the government, NGOs or in the private sector; percent were taxi or microbus drivers, market traders, street vendors or unemployed. The latter group reported more incidents in their relationships with police... Current rank, years worked and the type of police work conducted by the police officers who participated in the survey In consultation with the General Department, the survey involved more police officers from the neighbourhood and traffic police, representing percent and percent respectively of the total number of police officers interviewed. percent of the police interviewed had worked in the police department for - years, and percent for - years. This reflects the general demographic mix of the police department, and is indication of the impact of police personnel policies, which permit retirement at a relatively young age, generally in the mid-s. Type of police Years worked Traffic police Neighbourhood police Criminal police Detective police

13 Oriented Policing in Mongolia Rank Corporal Surgent Second Lieutenant Captain Constable Lieutenant colonel Lieutenant Major The survey included representatives from all police ranks, with constables, corporals and sergeants comprising percent of the total interview population; second lieutenants and lieutenants percent; and majors and above percent. Lower ranking police officers had the greatest interaction with the public.. Issues of greatest concern Of the total number of survey participants, percent of the citizens and percent of the police said unemployment and poverty were the issues of greatest concern to them. Inflation Unemployment Poverty Corruption Law and order Political leadership Others Inflation Unemployment Poverty Corruption Law and order Political leadership Others

14 Oriented Policing in Mongolia.The law and order situation.. Law and order situation in Mongolia percent of the police surveyed said that the law and order situation in Mongolia was good. percent of community members surveyed said that the law and order situation was bad. This represents a significant difference in perceptions. Excellent Good Poor Do not khow/ no response Excellent Good Poor Do not khow/ no response.. Description of the law and order situation: Change in Mongolia over the past year (December -December ) Law and order has improved Law and order has stayed the same Law and order has become worse Don`t know/no response Law and order has improved Law and order has stayed the same Law and order has become worse Don`t know/no response

15 Oriented Policing in Mongolia percent of police and percent of community said that the circumstance of law and order had stayed the same, though greater fractions of both community and policy interviewees said that law and order had improved, as compared to those who said that it had become worse. % of the police reported that law and order had improved over the prior year. This finding tracks with that of the following question... Recent changes in the government s commitment to protecting law and order percent of the police and percent of the community surveyed said that there had been changes in the government s commitment to protecting law and order. This suggests that the police are more aware of the actions of the government in this regard. Yes No Do not know Yes No Do not know.. Most common law and order/security problems community members and police who took part in the survey said that crime resulting from alcoholism was by far the most common law and order or security problem that they faced. According to the table below, the community and police concur that alcohol and petty crime associated with theft are the most significant security problems afflicting the neighbourhoods in which the survey was conducted.

16 Oriented Policing in Mongolia Rape Alcoholism/Drunkness Cause disorder in the public Car accidents Livestock Theft Theft/Petty crime Robbery Domestic violence Murder Land grabbing Threat of violence and intimidation Rape Alcoholism/Drunkness Cause disorder in the public Car accidents Livestock Theft Theft/Petty crime Robbery Domestic violence Murder Land grabbing Threat of violence and intimidation.. Corruption percent of the community members surveyed said that the most widespread form of corruption was abuse of power exercised by state employees. A even greater proportion, % of the community interviewees believed that the police were somewhat or very corrupt. Most prevalent types of corruption Are the police corrupt? Abuse of authority of government employers Abuse of authority of NGO, private sector employers Take, give bribe Make fake document Use the name and authority of people in high position Missing Very corrupt Some what corrupt Not corrupt Don`t know

17 Oriented Policing in Mongolia Have you ever paid a bribe? Have you ever been solicited for a bribe by police? Yes No Yes No Contrary to perceptions, the majority of community respondents, %, had never paid a bribe to the police. An even greater fraction, %, had never been solicited for a bribe. Consequently, it appears that there is a strong difference between perceptions and reality. Although a significant majority of the population had never been solicited or paid a bribe, the perception is nevertheless that the police are corrupt. Furthermore, since the fraction of citizens who paid a bribe (%) is larger than the fraction who were solicited for a bribe (%), it can be deduced that a majority of the citizens who paid a bribe initiated the offer, and therefore lapses in ethical judgment and integrity many in fact reside more with the public than with police... Primary sources of information about the law and order situation elders Radio Religious leaders Local elected officials Other Family Internet Friends Newspaper and periodicals Television Co-workers Personal Experience elders Radio Religious leaders Local elected officials Other Family Internet Friends Newspaper and periodicals Television Co-workers Personal Experience

18 Oriented Policing in Mongolia survey participants said that their main sources of information about the law and order situation in Mongolia were television, police and their colleagues, whereas members of the community said that their main sources of information were television, the press and radio.. functions.. Principal functions of the police percent of the police and percent of the community surveyed said that the principal function of the police was to ensure that laws and regulations were enforced. percent of the police and percent of community members believed the role of the police was to ensure the safety and security of all citizens. These figures illustrate that both the police and the community have a similar understanding of police roles. Ensure that the relevant laws and rules are enforced Maintain order through physical presence and patrols Ensure the safety and security of all citizens Protect the interests of select groups Ensure that the objectives of political leaders are met Ensure that the relevant laws and rules are enforced Ensure the safety and security of all citizens Protect the interests of select groups Maintain order through physical presence and patrols Ensure that the objectives of political leaders are met.. as public servants or agents of law enforcement percent of the police and percent of the community members said that police were public servants, whereas almost reciprocal views were expressed by the police (%) and the community (%) with regard to the role of police as agents of enforcement. Though the perceptions of the relative role of the police vary modestly between police and community interviewees, the general role and function of the police is understood, and corroborates the findings of question. immediately above.

19 Oriented Policing in Mongolia A servant of the public An agent of enforcement Both A servant of the public An agent of enforcement Both.. Most common types of contact between the public and the police percent of the police said that they interacted with the public while on patrol; percent said that interaction occurred when citizens reported crimes. Of the community members interviewed, percent said they interacted with police when they were stopped in vehicles; and percent said interaction took place during public events. Thus, whereas the police associate a majority of their interaction with more general functions associated with the environment of laws and protection of security, citizens hold a different view which relates more closely to enforcement. Interact with citizens at public events Interact with citizens as a function of patrolling Citizens report crime Citizens by becoming a witness Citizens by becoming a victim Citizens are questioned by in connection with an investigation Citizens spot search in a public place Citizens are stopped and questioned while traveling in a car, taxi or other road transport Other Interact with citizens at public events Interact with citizens as a function of patrolling Citizens report crime Citizens are questioned by in connection with an investigation Citizens are stopped and questioned while traveling in a car, taxi or other road transport Citizens spot search in a public place Interact with citizens in a bar, markets etc Other

20 Oriented Policing in Mongolia.. perception of who becomes a police officer Anyone Educated people Dishonest people People who loves money Physically well developed people Impolite people People with poor education Honest people Personal interest According to community members, many ascribed positive (virtuous) reasons for individuals to join the police force, including educated people (%) and honest people (%). Nevertheless, a greater proportion, ascribed less positive attributes with the police, including poorly educated people (%) and dishonest people (%)... Have you or a member of your family been a victim of any crime? Yes, No If, Yes then what kind of crime Yes No Land grabbing Violent crime: Resulting in the death of the family member Violent crime: Resulting in injury to you or a family member Bribery Extortion No violent crime: Theft of personal property A majority of the respondents, (%) said that they have never been a victim of any crime, but of those who had, the greatest number had been the object of non-violent petty crime.

21 Oriented Policing in Mongolia.. If you or a member of your family was a victim of crime, or was in the future a victim of crime, what did you, or would you, do? Among community members who had been the object of a crime, a diverse set of responses were reported, including seeking assistance from community members, locally elected officials, and the police. In a majority of the instances, interviewees said that they would register their case with the police in the future, if they were the victim of a crime. Was a victim If in the future is a victim Negotiated with the individual (s) who threatened them Sought assistance from a local elected official Sought assistance from other community members Took vigilante action against the criminal Sought police assitance but did not file a case Filed a case with the police Consulted a lawyer Did nothing Negotiated with the individual (a) who threatened them Seek assistance from a local elected official Seek assistance from other community members Take vigilante action against the criminal File a case with the police Consult a lawyer If you called the police, how did the police treat you? If you call the police, how do you think they will treat you? With respect and professionalism In a physically abusive manner In a verbally abusive manner With minimal respect and professionalism In a threatening or intimidating manner Did not take it seriously With respect and professionalism With minimal respect and professionalism In a threatening or intimidating manner In a physically abusive manner Will not take seriously In a verbally abusive manner Do not know

22 Oriented Policing in Mongolia Among survey respondents, the public was inclined to believe that the police would not treat them with respect or professionalism if a crime was reported. A small fraction had the contrary view... Did the police resolve the problem to your satisfaction? percent of the citizens interviewed said that police resolved their cases badly; percent said that while the police had made efforts, they had been unable to resolve the problem. Level of resolution If not satisfied, why? Resolved very well Resolved Resolved badly Did not resolve at all The police did nothing to solve the problem The police took some efforts but were unable to resolve the problem The problem was resolved, but not to my advantage Other. Resources.. General resources General manpow er General office space Communications equipment Investigative equipment Cars and trucks Motorcycles Firearms or other weapons General manpow er General office space Communications equipment Investigative equipment Cars and trucks Motorcycles Firearms or other weapons More than adaquate Adaquate More than adaquate Adaquate Barely adaquate Inadaquate Barely adaquate Inadaquate

23 Oriented Policing in Mongolia In terms of resources, most of the police who took part in the survey said that there were inadequate or barely adequate resources across all categories, the only exception being office space, which was viewed by the police to be adequate. Conversely, the public reported that most resources were adequate, and paradoxically, most reported that manpower was adequate or more than adequate... Are police well paid? percent of the police and percent of the citizens said the police were underpaid. Over paid Adaquately paid Under paid Don`t know Over paid Adaquately paid Under paid.. Would police do a better job in protecting citizens and maintaining law and order if they were better paid? Yes No Yes No percent of the police and percent of the citizens said that the police would do a better job if they were better paid.

24 Oriented Policing in Mongolia. Citizens understanding of the role and responsibilities of the police.. The most common way of contacting police Look for police in the neighborhood Calling the emergency number Go to police station Look for police in the neighborhood Calling the emergency number Go to police station Other percent of police and percent of the citizens surveyed said that the most common way to contact the police was to dial, which is indicative of generally positive communication related to the existence of an emergency number. Very few citizens would go to the police station for assistance, with comparably low numbers reported by the police. Citizen access to police stations may explain these relatively low numbers, or it may be related to citizens relatively dim views of the treatment they would receive from the police... Do you think that the average citizen reports crimes, or threats of crime, to the police? A majority of community respondents indicate that some or few victims would report crimes. Most of them do Some do Few do None do Most of them do Some do Few do None do

25 Oriented Policing in Mongolia.. If a citizen in this locality experiences a crime or is threatened by some criminal action, what would they do first? Negotiate with the individual (s) who threatened them Seek assistance from a local elected official Seek assistance from other community members Call the police Consult a lawyer Report the incident to the press Take vigilante action against the criminal Do nothing Negotiate with the individual (s) who threatened them Seek assistance from a local elected official Seek assistance from other community members Call the police Consult a lawyer Report the incident to the press Take vigilante action against the criminal Do nothing Both community and police respondents indicate that citizen s first response, if threatened by crime, would be to call the police... How effective do you think the police are in addressing citizens concerns or complaints? percent of the police said they were effective in addressing citizens concerns or complaints, which is the mirror response of community members, % of whom said the police were not effective. Very effective Effective Not so effective Poor Very effective Effective Not so effective Poor

26 Oriented Policing in Mongolia.. How effective do you think the police are in preventing crime? percent of the police said the police were effective in preventing crime; another percent said they were very effective. This was not the perception of the public, with more than half of those surveyed saying the police were not so effective. However, percent believed the police were effective. Very effective Effective Not so effective Poor Very effective Effective Not so effective Poor.. Why don t citizens report crimes? They do not know what to do They think it would be too expensive They think it would take too much time They do not think any remedy is available They do not want to be involved with the police of formal legal system They feal retaliation by those responsible They worry that it would bring shame or embarrassment to their family They think the police and law enforcement is ineffective They don`t trust police or law enforcement They think that police and law enforcement are corrupt Do not know Other They do not know what to do They think it would be too expensive They think it would take too much time They do not want to be involved with the police of formal legal system They do not think any remedy is available They feal retaliation by those responsible They worry that it would bring shame or embarrassment to their family They think the police and law enforcement is ineffective They don`t trust police or law enforcement They think that police and law enforcement are corrupt Do not know Other Most of the community members and the police believe that citizens do not report crime because they believe that it will be too time consuming. This suggests, that streamlining procedures and reducing bureacracy could contribute to greater reporting and case registration. The community and police report, with extraordinary consistency, the corollary reasons why cases are not reported, including a desire not to be

27 Oriented Policing in Mongolia involved with the police or legal system, and fear of retaliation. A significant number report that they do not know what to do, which could argue for greater publicity and public awareness of the emergency number, or efforts to make police more accessible in the neighbourhood or in the station.. Public perceptions of police performance.. Which of the following statements best describes the role of police in your locality? serve and respect the rights and interests of all citizens serve the interests of select groups serve the interests of political leaders fail to serve the interests of any one serve their own interests only serve the rich people Don`t know / no response percent of the community members said police served the rich; and percent said police only worked when it served their interests. Only percent of citizens responded positively to the issue of police performance, saying that police respected the rights and interests of all citizens... If a police officer approached you in this locality, how would you respond? With and openness With little concern or apprehension With mild concern With fear or distrust With disdain and contempt Other With and openness With little concern or apprehension With mild concern With fear or distrust With disdain and contempt Other

28 Oriented Policing in Mongolia This question elicited highly divergent responses from citizens and from the police. Whereas % of citizens said that they would respond with and openness if approached by the police, the police reported that they would be met largely with disdain and contempt, or with fear and distrust... Confidence in the capacity of police A majority of police have in their own ability to prevent and resolve crime, and they believe that this sentiment is shared by the local community. By contrast, while community members have lesser faith that police can prevent and resolve crime, they are generally less confident. How much do you have in the capacity of the police to prevent or resolve crime? How much do you think members of this locality have in the capacity of the police to prevent or resolve crime? Great Some Little No Great Some Little No How much do you have in the capacity of the police to prevent or resolve crime? Great Some Little No

29 Oriented Policing in Mongolia.. commitment How much do you have in the commitment of the police to prevent or resolve crime? How much do you think members of this locality have in the commitment of the police to prevent or resolve crime? Great Some No Do not know Great Some No Do not know % of police were confident in the commitmnt of their own forces to prevent and resolve crime, and they believed that community members were in large part equally confident of this commitment. However, percent of the citizens surveyed said they had little in police commitment. How much do you have in the commitment of the police to prevent or resolve crime? Great Some No

30 Oriented Policing in Mongolia.. Rating police performance Excellent Good Fair Poor Terrible Excellent Good Fair Poor Terrible In general, a majority of the citizens surveyed said that the police were doing a fair or good job, which compares with % of the police who thought that they were doing a good or excellent job. Among the % of citizens who rated performance poor or terrible, they cited: false accusations, not enough effort made to fight crime, a lack of police morals, dysfunctional police organization, abuse of authority, a failure to resolve problems, and self-serving behavior, as among the reasons... How would you characterize the general sentiment within the police force? Pride,, integrity Patriotism, sense of civic duty, democratic values Ensuring govemance, law and order Committed, but upward struggle against significant challenges Helplessness and despair Do not know Pride,, integrity Patriotism, sense of civic duty, democratic values Ensuring govemance, law and order Committed, but upward struggle against significant challenges Helplessness and despair A significant proportion of the police reportedly associated positive values and sentiments with their work. A vast majority address their work with pride, and integrity, and do so in order to ensure governance, law and order, or out of a sense of patriotic and civc duty. Such expression of positive self esteem is generally favorable.

31 Oriented Policing in Mongolia The public largely agrees with the police expression of self-image, but some report that the sentiment within the police force is generally characterized as an uphill struggle, or one of helplessness and despair... What in your opinion is the overall public perception of the police? Excellent Good Fair Poor Terrible Excellent Good Fair Poor Terrible and police report that public perceptions are normally distributed with fair being the central value.. Problems facing the police (Frequency) (Frequency) Lack of manpower (understaffed) Lack of equipment Lack of training Lack of resources (cash, petrol) Corruption Lack of public support Lack of leadership Lack coordination with other enforcement bodies Lack of morale /spirit/ pride Political interference Don`t know/no response Lack of manpower (understaffed) Lack of equipment Lack of training Lack of resources (cash, petrol) Corruption Lack of public support Lack of leadership Lack coordination with other enforcement bodies Lack of morale /spirit/ pride Political interference Don`t know/no response Other

32 Oriented Policing in Mongolia The majority of the participating police said that a lack of manpower, a lack of equipment and a lack of public support were the most pressing problems facing the police department. Public support, from prior survey questions, can seemingly be improved and strengthened. By contrast, the largest fraction of citizens believe that training is the single largest problem facing the polie.. Relationships between the community and police.. How would you describe the level of activity of the following groups in your locality? The police who took part in the survey said that NGOs and community-based organizations were active in their area, but religious associations and philantropic organziations were not. Most were unaware of the level of activity of political parties. The community members said NGOs, community-based organizations, religious associations and political parties were active, but philantropic organizations were not. (Frequency) (Frequency) National NGOs based organizations Religious associations Philanthropic organizations Political parties National NGOs based organizations Religious associations Philanthropic organizations Political parties Very active Somewhat active Very active Somewhat active Not active Don`t know Not active Don`t know

33 Oriented Policing in Mongolia.. Have you ever sought assistance from any particular group in your locality to combat crime and maintain law and order? National NGOs based organizations Religious associations Philanthropic organizations Political parties National NGOs based organizations Religious associations Philanthropic organizations Political parties Regularly seek their assistance Occasionally seek their assistance Never seek their assistance Regularly seek their assistance Occasionally seek their assistance Never seek their assistance A majority of both police and citizens said that they never sought assistance in combating crime and maintaining law and order from any of these groups. Developing relations between any or all of these constituencies, and citizens, could provide opportunity in the context of community oriented policing... How do the police and the public resolve a civil (non-criminal) dispute? percent of the police said they resolved civil disputes via administrative and legal channels. percent of the public said they opted for negotiation, while percent said that they would pay fines. They decide by themselves Advise to negotiate Resolve according to wealth and appearence Do not manage to make fair decision Charge with the crime Give fines Arrest/take to the police station They do not care Do not know Give advice No responce Use administrative law Mediates peace Other No responce

34 Oriented Policing in Mongolia.. How would you characterize the present relations between police and citizens in your locality? Excellent Good Fair Poor Terrible Excellent Good Fair Poor Terrible percent of the police and percent of citizens said the current relations between police and the public were fair... How do local citizens and the police regard each other? How do you regard the How do you regard the average police in your khoroo? citizen in your locality? As a partner in combating crime Someone to serves and protects With indifference Someone who takes advantage of citizens Someone to be views citizens with suspicion A threat to the interests or security of citizens As a partner in combating crime Someone to serve and protect With indifference Someone to be taken advantage of Someone to be viewed with suspicion A threat to the interests or security of the police Consistent with prior responses related to the role and function of the police in society, the largest proportions of both the police and community respondents concur that service and protection are at the heart of policing. Similarly, approximately a quarter of each constituency views the other as a partner in combating crime, which is encouraging for the prospects of stronger community-police relations, and for communityoriented policing.

35 Oriented Policing in Mongolia. Prospects for enhanced community-police relations.. Awareness of community policing Yes No Yes No percent of the police and percent of the citizens were unaware of community policing as a concept. If yes, what is community policing? percent of the citizens and percent of the police said they had heard of community policing, but their understanding of the concept varied widely and included: police who are polite and have nice manners, and who work for the interests of the community; community volunteers who help with police work; or citizens who fight crime or work to prevent crime. Some also confused community policing with public inspectors (olon niitiing baitsaagch)... What would enhance the capacity of the police to combat crime in this locality? Provide the police with more material resources to combat crime Provide the police with better equipment Provide better traning for police Promote better communication and cooperation between the police and members of the community that they serve Take firm action against police who abuse their authority Increase the salary, benefits, and other incentives of police Don`t know/no response Provide the police with more material resources to combat crime Provide the police with better equipment Provide better traning for police Promote better communication and cooperation between the police and members of the community that they serve Take firm action against police who abuse their authority Increase the salary, benefits, and other incentives of police Don`t know/no response

36 Oriented Policing in Mongolia percent of the police and percent of the citizens said that police should be provided with more material resources. percent of police and percent of citizens said there must be better communication and cooperation between police and the community... Possibility for citizens and police to work together to address law and order problems Yes No Yes No percent of the police and percent of the citizens said there was a possibility for police and the community to work together in addressing problems related to law and order. Again, this sentiment affirms that the prospects are good for community policing as a means to improve relations and service, to create a stronger sense of neighbourhood, and to deter crime... If you answered yes, can you provide three specific examples of how citizens and police can work together? Consider cummunity members opinions members must be honest must be honest Respect each other Improve secrecy of information Consider well to make a decision Make available relevant information Improve the relationship/connection Fight against corruption Introduce a system that one person polices ten others Make advertisements Organize collaborative patroling Increase the police salary Improve the public support Improve police resources Citizens need to give more information to the police Trust each other Citizens can patrol with the police Improve citizens knowledge on law Organize courses for citizens on law and order Improve the service of the police for citizens

37 Oriented Policing in Mongolia The majority of the participating police said citizens needed to provide police with more information, and that citizens could go out on patrol with police. In contrast, most citizens said police honesty and mutual respect were necessary for better cooperation between the police and the public... Which stakeholder groups should play a role in facilitating better dialogue and cooperation between members of the community and the police? The table below shows that both the police and the community members believed that central government authorities and community leaders could play an important role in facilitating better dialogue between the police and the public. Members of CRH Political parties Central government authorities NGOs Business leaders Women`s organizations Religious organizations leaders Other Members of CRH Political parties Central government authorities NGOs Business leaders Women`s organizations Religious organizations leaders Other

38 Oriented Policing in Mongolia C. PERCEPTIONS IN URBAN AND RURAL AREAS This survey focused on three main areas based on the level of police operations: Ulaanbaatar city districts, Ulaanbaatar city suburbs and two aimag centers - Ulaangom in Uvs aimag and Choibalsan in Dornod aimag. Geographically, there was little difference in the responses to the survey questions. Below are some examples of answers broken down by location. response The following numbers within the tables denote the number of people who took part in the survey. In all, there were police officers from Ulaanbaatar s central districts, from the suburbs of Ulaanbaatar, and from the two aimag centers, Ulaangom and Choibalsan.. How would you describe the law and order situation in Mongolia? How would you describe the law and order situation in Mongolia? UB center Urban and Rural UB suburb Aimag center Most of the police in the Ulaanbaatar central districts and suburbs and the aimag centers agreed that the law and order situation in Mongolia was good. However, members of the community had different perceptions.. Have you noticed any recent changes in the government s commitment to protecting law and order? Total Excellent Good Poor Do not know Total Urban and Rural UB center UB suburb Aimag center Total Have you detected any recent changes in government commitment to protecting law and order? Yes No Total Most of the police working in the Ulaanbaatar central districts and suburbs said that they were aware of the government s commitment to uphold law and order, while most of the aimag center police said the government was not committed to law and order issues.