THE INJUSTICE OF UNDER-POLICING IN AMERICA

Since 2014, viral images of Black people being killed at the hands of the police—Michael Brown, Eric Garner, Breonna Taylor, and many, many others—have convinced much of the public that the American criminal legal system is broken. In the summer of 2020, nationwide protests against police racism and violence in the wake of George Floyd’s murder were, according to some analysts, the largest social movement in the history of the United States.2 Activists and academics have demanded defunding the police and reallocating the funds to substitutes or alternatives.3 And others have called for abolishing the police altogether.4 It has become common knowledge that the police do not solve serious crime, they focus far too much on petty offenses, and they are far too heavy-handed and brutal in their treatment of Americans—especially poor, Black people. This is the so-called paradox of under-protection and over-policing that has characterized American law enforcement since emancipation.5The American criminal legal system is unjust and inefficient. But, as we argue in this essay, over-policing is not the problem. In fact, the American criminal legal system is characterized by an exceptional kind of under-policing, and a heavy reliance on long prison sentences, compared to other developed nations. In this country, roughly three people are incarcerated per police officer employed. The rest of the developed world strikes a diametrically opposite balance between these twin arms of the penal state, employing roughly three and a half times more police officers than the number of people they incarcerate. We argue that the United States has it backward. Justice and efficiency demand that we strike a balance between policing and incarceration more like that of the rest of the developed world. We call this the “First World Balance.”We defend this idea in much more detail in a forthcoming book titled What’s Wrong with Mass Incarceration. This essay offers a preliminary sketch of some of the arguments in the book. In the spirit of conversation and debate, in this essay we err deliberately on the side of comprehensiveness rather than argumentative rigor. One of us is a social scientist, and the other is a philosopher and legal scholar. Our primary goal for this research project, and especially in this essay, is not to convince readers that we are correct—but rather to encourage a more explicit discussion of the empirical and normative bases of some pressing debates about the American criminal legal system. Even if our answers prove unsound, we hope that the combination of empirical social science and analytic moral and political philosophy we contribute can help illuminate what alternative answers to those questions might have to look like to be sound. In fact, because much of this essay (and the underlying book project) strikes a pessimistic tone, we would be quite happy to be wrong about much of what we argue here.In the first part of this essay, we outline five comparative facts that contradict much of the prevailing way of thinking about what is distinctive about the American criminal legal system. In the second part, we draw out the normative implications of those facts and make the case for the First World Balance.In one sense, prisons and police are complements. It would be impossible to have many people in prison without the police, since, to put people in prison, the police usually have to apprehend and arrest them first. It would also be difficult to have police without prisons, since the threat of imprisonment is one of the typical sanctions wielded by police around the world. Given this, and given the exceptionally high incarceration rate in the United States, many people assume that the United States must also have an exceptionally high number of police officers.But that is not in fact the case. Figure 1 plots the police and incarceration rates of a sample of developed countries.6 The graph illustrates the chief fact that has animated the iterature on mass incarceration: America is a developed-world outlier in its use of incarceration. Yet it also illustrates the much less-well-known fact that America is not at all an outlier in its rate of policing. The United States has around 212 police officers for every 100,000 total residents, which ranks it in the forty-first percentile of today’s developed world.Yet this way of putting things in fact understates the magnitude of what has been misunderstood. Figure 1 denominates the scope of incarceration and policing by population. By that metric, the United States has an exceptionally high incarceration rate but a relatively normal number of police officers given the total size of its population. But we think it is more informative to denominate punishment and policing by the level of serious crime in a country. By doing so, it is possible to make inferences about cross-national differences in how countries manage serious crime.Here one runs into some difficulties. For several reasons, it is challenging to compare levels of serious crime across countries. Some countries criminalize acts that are perfectly legal in others. Countries define many criminal acts, such as “assault,” differently from one another.7 And countries vary widely in their ability to measure the incidence of criminal acts. The result is that many international patterns in reported data are obviously misleading. Data collected by the United Nations Office on Drug and Crime, for instance, suggest that the rate of violent crime is higher in Belgium, France, and Canada than in El Salvador, Russia, or Rwanda.8 Our solution to this problem is to measure the rate of serious crime by the rate of homicides.For the comparisons that anchor this piece—the United States to the developed world—this immediately raises a problem. Franklin Zimring and Gordon Hawkins have argued that “[r]ates of crime are not greatly different in the United States from those in other developed nations. … [O]ur extremely high rates of lethal violence are a … a distinct social problem.”9 If America has more lethal violence than Europe, but not more crime, the relatively high homicide rate in the United States would be a biased estimate of the rate of serious crime.We have two kinds of reasons for thinking that this is wrong and that the homicide rate is the right (or best) measure. First, given the reliability issues that bedevil the police or victim survey data on which Zimring and Hawkins and others rely, this is an area in which one has to take some cues from theory and other data. Consider, then, the following trilemma.Concentrated disadvantage is the root cause of most serious crime in developed societies.America has significantly more concentrated disadvantage than European countries.America has the same amount of serious crime as other developed countries.One of these three statements must be false. Criminological theory and existing social science evidence strongly support (1).10 And we think there is good evidence to support (2).11 The main theoretical reason to believe (3) is that the United States has far more guns per capita than European countries. But while firearm availability no doubt has some impact on the level of violence, we think the is to be would be difficult to with other patterns across and Consider, for that while the United States has times as many guns as El Salvador, the homicide rate there is roughly times higher than it is And that in the United States are much more to a than Given this and given the reasons to believe and we think (3) is most to be the of this second not on the that homicide for a of the total by as of the crime rate to by the state, they are with a petty and one murder has much serious crime than a with a and one petty the crime rate would be the same in measure has to for the or of is difficult to measure how different kinds of crime are with but the a first estimate the social of different kinds of crime by people how much they would be to to their of being a victim of this and that the of a murder is around the of an than the of a around and the of around homicide is much than other it is much more that it for about of the total of This that it is a much estimate of the rate of serious than of the rate of Figure the same but this by homicide rather than by immediately level of incarceration relatively is a higher than the developed-world but not by is the fact that its if by the level of serious crime, America is not but rather America has about the number of police per than the developed of the of police has been that American police are inefficient. people argue that American Black been and they by this that the of American police are focus too much on petty and too on serious This is the of for on the fact that of a typical police is to violent it is that in comparative the police in the United States do not solve many serious rate is the of all as Figure The developed around one arrest per homicide that In the United States, the is this not to as because police in the United States are exceptionally on one measure of police the number of homicide per police The rate is the of police focus and the police The of policing in the United States that the problem with rate is that is but focus is In fact, as Figure the is is but focus is way of much of what we have far is to that the United States to the of punishment the of The high and the level of police per homicide suggest that the United States on long rather than the of arrest to One way to estimate and more is to the into the of to homicide and the of to Figure plots these two across the developed world. 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