巡察地區隊 運用에 관한 硏究 : 巡察活動의 效果性을 中心으로 = (A)study on operation of patrol division : an assessment of the effectiveness of patrol

다국어 초록 (Multilingual Abstract)

Modern society is changing rapidly. Technological development and the advent of the 'information society' are impacting on our thinking, sense of values, lifestyles and even the structures of social organizations. Since these phenomena are changing the face of crime and disorder, they raise questions about the effectiveness of the forms of traditional policing that respond to these problems. Especially since the 1970s experiments in police patrolling in the United States have taught us that there are limits to preventing crime in the community through traditional police patrol activities and reducing public fears about crime. So in the 21st century, advanced countries that the most effective way of solving problems such as crime and disorder is not through police alone; these countries are striving to solve the problems of crime with local communities through cooperation and creating better relations with communities. That is, advanced countries recognize that local issues such as crime and disorder are the responsibility of the entire society; Community Policing, which strives to solve problems through cooperation between the police and local communities, has emerged as a new paradigm of policing and is influencing police forces around the world.
A midst these changes, in October 2003 the Republic of Korea replaced its local area police box system, which had operated for 58 years, with Patrol Force Divisions under the name of the 'Community Policing system'. The manpower and equipment of existing police boxes were combined into groups of 3-5 in one place and formed Patrol Force Divisions. The aim was to improve the effect of policing by converting police boxes and mobile patrol teams, which were devoted to preventing crime 24 hours per day and patrolling communities, into Community Policing Centers, which would be responsible for serving the local community. This study investigates the emergence of patrolling through the transition from the small-scale community police box system to the large-scale Patrol Force Divisions, and asks how effective it is in protecting the community compared to the patrol box system.
This study argues that the positive goals of police patrol activity are the 'attainment of security and peace in the community' as defined in the Police Agency's directive, the 'Regulations relating to the Organization and Operation of Local Police'. The study assessed whether there had been any change in the attainment of these goals since the inauguration of Patrol Force Divisions. As a basis for this assessment, the study used mainly the objective materials that measure traditional effects such as crime incidence rates and arrest rates and response times to emergency 112 calls. The study also investigated subjective and qualitative materials that have been recently emphasized as measures of effects in order to evaluate local citizens and police officers. However the study used a Korea Gallup poll conducted in May 2003 on the basis of 1,000 adults as a secondary source to consider citizens' evaluation of the Patrol Force Divisions that are currently operating. So the study used materials generated from a public opinion survey conducted on the basis of the police officers in the most central positions after the change from police boxes to the Patrol Force Divisions. The study conducted probability sampling and non-probability sampling of 750 students at the Police Comprehensive Academy from July to November 2004, and undertook a statistical analysis of 696 valid responses after the students completed a questionnaire. The officers' evaluation of the Community Policing Centers since the introduction of Patrol Force Divisions was the dependent variable and the four independent variables in effect here were the officers' immersion in the structure, preventative patrolling activities, local response activities and local cooperative activities.
The study came to the following findings about the effectiveness of patrol activities on the basis of this research model.
First, there were no great changes in objective measures such as the rates of crime incidence and arrest rates since the introduction of Patrol Force Divisions. In terms of five areas of crime incidence in the 10 months before and after the introduction of the Patrol Force Divisions, the rates of murder and rape increased but there was a reduction in robbery, theft and violent crime. In terms of arrest rates, arrests increased only for violent crimes, there was no change for rape, and arrests fell even further for murder, robbery and theft. Further, the speed of responses to emergence calls was lower when compared to the police box system. Prior to the introduction of Patrol Force Divisions police arrived on the scene of a crime within five minutes of a call on 86% of occasions but this fell to 80% under the new system.
Second, local people have not felt a great change in terms of improvements in police patrol activities and security services since the introduction of Patrol Force Divisions. The Office for Government Policy Coordination commissioned a survey by Korea Gallup in May 2004 into the improvement of security services during the police box system and the current Patrol Force Division. The survey found that 27.7% of the general public and 15.3% of experts responded that services had 'improved', 5.7% and 5.6% respectively responded that services were worse, 42.9% and 47.8% respectively said things were similar to in the past, and 23.7% and 31.2% said they did not know. So this study concluded that most respondents have not felt a great change since the transition from the police box system to Patrol Force Divisions. A poll conducted by World Research for the Police Agency in July 2004 and reported to the Police Agency's Life Security Bureau found that the overall policing activities- such as the capacity to respond to crime, handling of traffic accidents, crime prevention activities and service to the community - of local police officers has been strengthened and improved due to the Community Policing system. However World Research's analysis of the operation of the Community Policing system found that 'about half the general public' thought the security capacity and activities of the police 'were similar to in the past' since the introduction of Community Policing in October 2003, so there doesn't appear to have been much change since the change of systems. Korea Gallup's public opinion survey arrived at similar conclusions.
Third, police officers thought that the state of community security since the introduction of Patrol Force Divisions was worse than under the police box system. Officers had highly negative opinions in all five categories surveyed: crime reduction, improvements in public order, improvements in apprehending criminals, improvements in the quality of police services and improvements in the sense of community security.
So the survey results used in this study found that the effectiveness of patrol activities has not improved since the change from police boxes to Patrol Force Divisions, on the basis of both objective and subjective measures.
The study next conducted a regression analysis to find if the four independent variables that were assumed to influence the effectiveness of patrol activities did impact on the dependent variable (effectiveness of patrol activities). All four variables were found to have an effect. The variable that most heavily influenced the effect of patrol activities was local cooperative activities, followed by preventative patrolling activities, local response activities and immersion in the structure. In terms of the four independent variables' degree of change since the introduction of Patrol Force Divisions, only local response activities improved compared to the police box system and the remaining variables were found to have become worse.
Based on these results, the study suggests the following measures to improve the effectiveness of patrol activities under the Patrol Force Divisions now in operation.
First, local cooperative activities have had the biggest impact on the effectiveness of patrol activities and also have weakened the most since the introduction of Patrol Force Division, so these must be strengthened. Some ways of doing so would be to raise the rank of public affairs officers to sergeant and dispatch female officers to Community Policing Centers in order to strengthen the role of public affairs officers, and to utilize the women's and youth counseling centers that are spreading in metropolitan areas. Also each Patrol Force Division needs to operate in accordance with the specific needs of its community. Various cooperative programs involving police and the local community are needed, such as citizen police schools, use and operation of functional and realistic cooperative bodies, the holding of seminars at each Community Policing Center to prevent crime in the community, strengthening of contact between the citizens and the police through the use of foot and bicycle patrols, and the use of 'stop and talk' programs when officers are on patrol in their cars.
Second, preventative patrolling activities need to be strengthened. A variety of patrol tactics can be introduced from advanced countries, such as the use of both visible and invisible patrols, the partial use of directed patrols, the use of target-oriented patrol tactics to observe specific people, locations and incidents, and the use of split-force patrols. The focus should be on problem-oriented policing, which avoids the traditional post-incident response and incident-oriented police activities and is instead interested in preemptive solutions and the basic causes and conditions of problems. In turn, the promotion and reward system needs to be reformed so that it highly values 'thinking officers' in order to promote problem solving rather than the Patrol Force Division's emphasis on the strict delegation of duties and orientation towards results.
Third, local response activities, which were the one area to improve since the introduction of Patrol Force Divisions, need to be further developed. One way would be, as Wilson and Kelling stress in their 'broken windows' theory, to take positive measures to ensure that police to eliminate unlawful and trivial behavior so there is not even a single broken window in their community. Broken windows policing is needed given that drunkenness is increasing 2% each year as a proportion of total crimes, Patrol Force Divisions handle 3.6 cases of drunkenness each day, and each case takes 2-3 hours to handle. To improve the speed of response to emergency calls, which are increasing in number but falling in response time, police need to screen the content of calls and respond selectively rather than trying to respond to all calls at the same speed and in the same manner. Calls about crimes that are in progress need to be given first priority, and other calls from the public need to be addressed in a friendly and informative manner or by other means.
Finally to strengthen the insertion of officers in their structures, which has weakened since the introduction of Patrol Force Divisions, officers on patrol need to be encouraged and the incidence of unreasonable working hours should be improved. First officers need to be encouraged so that they understand and think that they are partaking in patrol officers involved in the policing of their communities so that they play the role of servants of the local community rather than simply law enforcers. Also individual personnel schedules should guaranteed that officers can work for at least 2-3 years in the same area and have the equipment so that they can work without fear of attack while on duty. An expansion of facilities is required in order to improve a range of difficulties resulting from the housing of 3-4 times the number of police personnel in the same police station as was previously used. The most important part of executing police duties is that the function of police stations must reduce the operations of Patrol Force Divisions so that Divisions can concentrate on their original duties of community service and preventative patrolling. These operations have been reduced a little compared to the past but this study found that they must be further reduced in areas that are still significant such as investigations and arrests, the arrest of people indicted of crimes, and the duty to file reports. And rather than fitting the personnel into three groups to suit the 40-hour working week, officers on patrol need to be handled flexibly to take the demands of security into account. The new paradigm of shift changes that some departments of the Police Agency is trialing needs to be adopted as a means of arranging work schedules that reflect the views of officers and the needs of each community.

목차 (Table of Contents)

• 목차
• 第1章 序論 = 1
• 第1節 硏究의 目的 = 1
• 第2節 硏究의 範圍 및 方法 = 6
• 1. 硏究의 範圍 = 6
• 2. 硏究의 方法 = 7
• 第2章 硏究의 理論的 背景 = 9
• 第1節 巡察의 意義 = 9
• 1. 巡察의 意義 = 9
• 2. 巡察의 種類 = 12
• 第2節 巡察活動 效果性의 論議 = 21
• 1. 巡察活動 效果性의 意義 = 21
• 2. 效果性의 測定 = 26
• 3. 組織沒入과 效果性 = 38
• 第3節 巡察關聯 警察活動理論 = 39
• 1. 傳統的인 警察活動과 巡察 = 39
• 2. 地域社會警察活動과 巡察 = 42
• 3. 問題指向的警察活動과 巡察 = 48
• 第4節 巡察活動 效果性에 관한 先行硏究 = 54
• 1. 傳統的인 巡察活動의 效果性 = 54
• 2. 徒步巡察活動의 效果性 = 58
• 3. 1人 및 2人 巡察活動의 效果性 = 67
• 第3章 各國 警察의 巡察組織과 運營 = 70
• 第1節 英國 = 70
• 第2節 美國 = 73
• 第3節 獨逸 = 76
• 第4節 프랑스 = 79
• 第5節 日本 = 85
• 第6節 韓國 = 89
• 第4章 調査結果의 分析 및 論議 = 99
• 第1節 調査設計 = 99
• 1. 分析模型 및 假設의 設定 = 99
• 2. 變數의 操作的 定義 및 設問紙의 構成 = 102
• 3. 標本抽出 및 資料分析方法 = 109
• 4. 標本의 一般的 特性 = 111
• 5. 測定指標의 信賴度와 妥當度 檢證結果 = 115
• 第2節 調査結果의 分析 = 116
• 1. 巡察地區隊 編成의 適切性 = 116
• 2. 巡察地區隊의 運營實態 = 122
• 3. 巡察地區隊 運營以後 巡察活動 = 143
• 4. 巡察地區隊의 巡察活動 效果性 = 184
• 5. 假說의 檢證 = 199
• 第3節 分析結果의 論議 = 204
• 1. 警察의 地域協力活動 弱化 = 206
• 2. 警察의 豫防巡察活動 未洽 = 206
• 3. 警察의 現場對應活動 向上 = 207
• 4. 警察의 組織沒入 弱化 = 208
• 第5章 警察巡察活動의 效果性 提高方案 = 212
• 第1節 地域協力活動의 活性化 = 212
• 1. 民願擔當官 役割의 活性化 = 212
• 2. 地域協力프로그램의 開發 = 214
• 第2節 豫防巡察活動의 强化 = 216
• 1. 彈力的 巡察戰略의 活用 = 217
• 2. 問題指向的 警察活動 展開 = 221
• 第3節 現場對應活動의 改善 = 224
• 1. 酒醉者에 대한 强力한 對應 = 225
• 2. 112申告 出動의 差別的 對應 = 226
• 第4節 警察官組織沒入의 誘導 = 231
• 1. 警察官의 自矜心 鼓吹 = 232
• 2. 勤務運營의 合理的 改善 = 233
• 第6章 結論 = 235
• 參考文獻 = 241
• ABSTRACT = 253
• 부록1 설문지 = 262
• 부록2 신뢰도 분석결과 = 268
• 부록3 타당도 검증결과 = 275
• 부록4 회귀모형 기본가정 충족여부 = 278