Mcintyre 1967
Mcintyre 1967
By JENNIE McINTYRE
of crime prevention and law enforcement. asked a sample of adults to select the
The National Crime Commission in top problem facing their community
1966 undertook to assess these attitudes from a list of 39. Juvenile delinquency
through an analysis of national public was picked by persons than al-
more
opinion polls and surveys conducted most any other problem; only local real
for the Commission. The nature of estate taxes were named more fre-
these surveys and the populations sam- quently. The third most frequently
pled are described by Biderman else- named, the need for more recreational
where in this issue. areas, was probably related to the con-
cern with juvenile delinquency.
HEIGHTENED CONCERN ABOUT CRIME Whether concerned about adult
more
The national in
public opinion polls or juvenile crime,most people think
recent years provide some evidence of that the crime situation in their own
the heightened concern about crime.4 community is getting worse, and while
Until recently, crime was given only substantial numbers think the situation
peripheral attention by national poll- is staying about the same, hardly any-
sters. When completely open-ended one sees improvement. A Gallup sur-
questions were asked by a Gallup poll vey, in April 1965, showed that this
about the problems facing the nation, pessimistic perception of the problem
international problems invariably top- prevailed among men and women, well
ped the lists; until recently, crime was educated and less well educated, and
not mentioned by enough persons to among all age, regional, income, and
appear on the list of top problems. city-size groupings. When citizens in
In 1966 when the National Opinion Washington, D.C., were interviewed by
Research Center (NORC) conducted a the Bureau of Social Science Research
national survey for the Crime Commis- (BSSR) the next year, 75 per cent
sion, interviewers asked citizens to pick thought that crime had been getting
from a list of six major domestic prob- worse in that city during the past year;
lems the one to which they had been 16 per cent thought that it was about
paying the most attention recently.-’ the same.6
Crime was the second most frequently
SOURCES OF ATTITUDES
selected from this list; only race re-
lations was picked by more persons. For the large majority of people,
(Lower-income nonwhites placed more attitudes about crime and crime trends
emphasis on education than crime.) apparently are derived largely from vi-
When local community problems are carious sources. Whether we judge vol-
considered, juvenile delinquency takes ume from crimes known to the police
on added significance. In 1963 Gallup or from the far more generous estimates
from public surveys conducted for the
4
Surveys by George Gallup, Director, Amer- Crime Commission, its incidence is not
ican Institute of Public Opinion, Princeton,
New Jersey, will be referred to as Gallup 6Albert D. Biderman, Louise A. Johnson,
polls. Those by Louis Harris, public opinion Jennie McIntyre, and Adrianne W. Weir,
analyst, will be cited as Harris surveys. Report on a Pilot Study in the District of
5
Philip Ennis, Criminal Victimization in the Columbia on Victimization and Attitudes
United States: A Report of a National Survey, toward Law Enforcement, U.S. President’s
U.S. President’s Commission on Law Enforce- Commission on Law Enforcement and Ad-
ment and Administration of Justice Field ministration of Justice Field Survey I (Wash-
Survey II (Washington, D.C.: U.S. Govern- ington, D.C.: U.S. Government Printing Of-
ment Printing Office, 1967) ; hereinafter re- fice, 1967) ; hereinafter referred to as the
ferred to as the NORC study. BSSR study.
to have taken strong household security records in Chicago, for example, indi-
measures, however: 57 per cent of cates that Negroes are far more likely
victims and 58 per cent of nonvictims to be the victims of a serious offense
had high scores on an index of precau- against the person than are white per-
tionary behavior which included locking sons.’2 The greater anxiety of women
doors during the daytime and keeping than men is not consistent with what is
a watchdog or weapons for protection. known of the victimization risks, how-
Anxiety about crime was not a simple ever, and one would have to look for
function of living in areas where crimes alternative explanations. Anxiety scores
are frequent occurrences. The BSSR were lower at the higher income levels
study in Washington, D.C., found that for both Negroes and whites.
the average level of concern with crime
in a predominantly Negro precinct that
CRIME WORSE ELSEWHERE
had one of the highest rates of crime
in the city, according to police data, If most people do not base their
was lower than it was in another Negro
attitudes on personal experience, neither
precinct that had a lower crime rates do they rely on their understanding of
Perhaps the most direct evidence that the experiences of others in their im-
people form their attitudes about crime mediate environs. While most people
on the basis of something other than
questioned thought that the situation is
experience can be found in their own terrible and getting worse all the time,
statements. After respondents in Wash-
they nevertheless believed that they are
ington were asked for their estimate of relatively safe near their own homes.
an increase or decrease in crime in the In the NORC study for the Commis-
city, they were asked where they had sion, 60 per cent of those questioned
obtained their information on this sub-
compared their own neighborhood fa-
ject. A preponderant majority said that vorably to other parts of the community
they got their information either from in which they lived, with regard to the
the news media or from what they heard likelihood that their home would be
people say. broken into, while only 14 per cent
But if the actual experience of vic-
timization is not a major determinant
thought that their area presented a
greater hazard. 13 This is true even in
of attitudes about crime, there is another areas which are considered crime-ridden
sense in which vulnerability does in-
by the police‘areas which might ter-
fluence fear. In the survey in Wash-
rify many suburban dwellers. In the
ington, D.C., the BSSR constructed an BSSR survey in Washington precincts
index of anxiety about crime.&dquo; This with average to high crime rates, only
index reflected a general concern for one out of five respondents thought that
personal safety as well as the belief the chances of being beaten were greater
that crime is increasing. It found that
12Albert J. Reiss, Jr., "Probability of Vic-
Negro women had the highest average timization for Major Crimes against the Per-
score, followed by Negro men, white son by Race and Sex Status of Victims and
women, and white men. The greater Offenders," in Albert J. Reiss, Jr. (ed.), Studies
concern of Negroes is consistent with in Crime and Law Enforcement in Major
the risks of victimization suggested by Metropolitan Areas, U.S. President’s Com-
mission on Law Enforcement and Admin-
police statistics. An analysis of police istration of Justice Field Survey III (Wash-
ington, D.C.: U.S. Government Printing Office,
10 BSSR study, op. cit., p. 125. 1967) ; hereinafter referred to as Reiss studies.
11 BSSR study, op. cit., p. 121. 13NORC study, op. cit., Table 47, p. 76.
in his neighborhood than in other eight per cent said their dogs were
parts of the City.14 Almost half of the primarily watchdogs, and 37 per cent,
national sample interviewed by NORC that firearms in the home were kept at
said that there was no place in their least partly for protection
own city (or suburb or county) where Possibly indicative of the concern of
they would not feel safe. Two-thirds the public is the reaction of citizens
of the respondents said that they feel to a question posed in the NORC sur-
safe walking alone when it is dark if vey : &dquo;If you were walking down the
they are in their own neighborhood.15 street alone around here in the evening
and heard footsteps coming from be-
CENTRAL ROLE OF FEAR hind, and turned to see a stranger ra-
FOR THE PERSON pidly approaching, what would you
do? &dquo; A large majority interpreted the
When citizens in Washington were situation as dangerous. One-fourth of
asked what steps they had taken to the respondents said they would &dquo;do
protect themselves from crime, they nothing, just keep right on walking,&dquo;
spontaneously spoke of avoiding danger but the most frequent reply was &dquo;Run
on the streets.16 They said that they as fast as I could or call for help.&dquo; 19
stayed home at night or used taxis, This fear of personal victimization is
or they avoided talking to strangers. becoming more intense. In recent years,
Others spoke of measures to protect Harris surveys have found that, each
themselves and their property at home; year, 50 per cent of their respondents
they kept firearms or watchdogs or put have said that they are more worried
stronger locks on the doors and win- about their personal safety on the streets
dows. In the districts surveyed in Bos- than they were in the previous year.
ton and Chicago by the University of Although many persons felt relatively
Michigan, five out of every eight said safe in their own neighborhoods, they
that they had changed their habits in were not thereby indifferent or uncon-
one or more of these ways because of cerned about personal safety for them-
the fear of crime. 17 No one mentioned selves or their families. Respondents in
efforts to avoid loss through fraud or Washington, D.C., were asked whether
overly sharp loan practices or any kind they had thought more about the neigh-
of swindle. It was clear that the crimes borhood or the house when they had
which they feared were crimes which selected their current residence. The
might endanger their personal safety, largest number said that the neighbor-
especially attack by a stranger. hood was most important, and nearly
The national survey by NORC sug- as many said that neighborhood and
gests the same conclusion. While two- house were of equal importance.2° Al-
thirds of those interviewed feel safe though some respondents selected a
walking in their neighborhoods, one- location because of its convenience or
third do not. Over 80 per cent lock aesthetic qualities, 56 per cent had
their doors at night, and 25 per cent placed greatest emphasis on the safety
lock them during the daytime when or moral characteristics of the neighbor-
family members are at home. Twenty- hood. Having selected a location which,
14 BSSR study, op. cit., p. 121.
within the alternatives available, seemed
15 NORC study, op. cit.
16 BSSR 18 NORC study, op. cit., Table 44, p. 74.
study, op. cit., pp. 128-130.
17 Reiss
studies, op. cit., Vol. I, Sec. II, p. 19 NORC study, op. cit.
20 BSSR
103. study, op. cit., p. 119.
safe, most felt relatively secure. None- as violence. A recent study found the
theless, 24 per cent of the respondents quality, numbers, and distribution of
in Washington felt that there was so ambulances and other emergency serv-
much trouble in the area that they ices severely deficient, and estimated
would like to move. In the areas studied that as many as 20,000 persons die each
in Boston and Chicago, 20 per cent year as a result of inadequate emer-
thought that they would like to move gency medical care.25
because of crime; 30 per cent wanted Death or injury as a result of vio-
to move out of the higher-crime-rate lence, however, has a different signi-
district in Boston.21 ficance than death by accident or im-
proper care, a significance consistent
SIGNIFICANCE OF THE with the repugnance with which Ameri-
FEAR OF CRIME cans view violence. Recent studies have
The crimes which the public fears shown that there is a widespread con-
most, crimes of violence, are those sensus on the relative seriousness of
which occur least frequently. People different types of crimes.26 Offenses
are much more tolerant of crimes involving physical assaults against the
against property. The average citizen person are the most feared, and the
probably suffers the greatest economic greatest concern is expressed about
loss as a result of crimes against busi- those in which a weapon is used.
nesses and public institutions which The precautions which people take to
pass on their losses in the form of protect themselves indicate that under-
increased prices and taxes. Neverthe- lying the fear of crime is a profound
less, most shoplifters are never arrested, fear of strangers. They are afraid that
and employees suspected of dishonesty some unknown person will accost them
are either warned or dismissed.22 on the street or break into their homes
Furthermore, violence and the threat and take their property or attack them
of violence do not present as great a personally. Again, the fears are not
hazard as do other risks in an industrial consistent with the objective risks. Not
society. The number of accidental in- only are the risks of injury by violence
juries calling for medical attention or slight relative to the risks of injury or
restricted activity of one day or more23 death from other causes, but the risk of
is far greater than the 1.8 offenses per serious attack by strangers is about
1,000 Americans involving violence or half as great as it is from persons well
threat of violence .21 Inadequate medi- known to the victim.27 Injuries in the
cal care is another example of risk case of assault are not only more com-
which does not provoke the same horror mon but more serious when the victim
21 25 Data
Reiss studies, op. cit., p. 31. obtained by interview from Amer-
22 ican College of Surgeons, Washington, D.C.,
Donald J. Black and Albert J. Reiss, Jr.,
"Problems and Practices for Protection against 1966.
Crime among Businesses and Organizations," 26Thorsten Sellin and Marvin E. Wolfgang,
in Reiss studies, op. cit. The Measurement of Delinquency (New York:
23
National Safety Council, "Accident Facts" John Wiley and Sons, 1964), Table 69, p. 289.
(Chicago: National Safety Council, 1966), 27For a review of findings on the relation-
p. 2. ship between victim and offender, see U.S.,
24
U.S., Department of Justice, Federal Bu- President’s Commission on Law Enforcement
reau of Investigation, Crime in the United and Administration of Justice, Task Force
States: Uniform Crime Reports (Washington, Report: Crime and Its Impact—An Assess-
D.C.: U.S. Government Printing Office, ment (Washington, D.C.: U.S. Government
1930— [annually]), 1965, p. 3. Printing Office, 1967), pp. 14-15.
attended, that library use is decreasing could also indicate a concern with the
and recreational facilities remain un- moral training and discipline of youth.
used, because of stories of robberies and Few persons suggested innate defects,
purse-snatchings. 28 and even fewer blamed police failure
As social interaction is reduced and in any of these polls.
fear of crime becomes fear of the Although a majority saw crime as the
stranger, the social order is further consequence of a moral breakdown,
damaged. Not only are there fewer most tended to believe that stricter law
persons on the streets and in public enforcement was the way to cope with
places than there might be, but persons the current crime problem. The BSSR
who are afraid may show a lack of survey in Washington, D.C., asked citi-
concern for each other. The logical con- zens what they thought was the most
Reliance on strict policing and law en- Persons who believe that poor upbring-
forcement is somewhat tempered and ing and moral training of youth are a
not altogether repressive, however. major cause of crime might be willing
When NORC asked whether the main to assume some responsibility for im-
concern of the police should be with proved discipline. A Gallup survey
preventing crimes or with catching which asked adults whether they would
criminals, over 60 per cent placed the be willing to devote one evening a
emphasis on prevention.3° Gallup asked month to working with juvenile delin-
respondents how they would deal with quents or trying to solve juvenile de-
a hypothetical youth caught stealing linquency problems did, indeed, uncover
an automobile. The most frequent re- a considerable potential responsibility.
sponses were to give him another Sixty per cent said that they would
chance, be lenient. be willing to spend an evening each
When the fate of an actual person is month in such activities. On the other
to be decided, the demand for stern hand, citizens in one precinct in Wash-
treatment of the lawbreaker is further ington were asked whether they had
30
NORC study, op. cit., p. 59. 31 Black and Reiss, op. cit.
ever &dquo;gotten together with other people citizen involvement when responsible
around here, or has any group or or- persons convinced of its value.
are
crime, there does exist the potential for attitudes toward these issues and more
32
Cutler and Reiss, op. cit. 33 BSSR study, op. cit., p. 146.
general attitudes toward the police. Re- more than half of those who took a
spondents were characterized as more or rights position on this question also ex-
less favorable toward policemen, accord- pressed strong sympathy and respect
ing to their responses to a six-item scale. for the police.
Nearly half (47 per cent) of those who In addition to a tradition of concern
did not favor police toughness or more for individual rights, a belief that the
police dogs nevertheless indicated strong police discriminate in the way that they
respect and sympathy for policemen. treat various groups may account for
A similar ambivalence was observed some of the ambivalence regarding law
in the results of the national survey enforcement. In Washington, D.C., the
conducted by NORC.34 Forty-five per BSSR study found that 60 per cent of
cent favored civilian review boards (355 the Negro men, 49 per cent of the
per cent opposed them; 20 per cent Negro women, and 27 per cent of the
were uncertain or indifferent); 52 per white citizens thought that Negroes get
cent believed that the police should have worse treatment than other people.36
more power; 42 per cent, that police Among the comments of these respon-
should risk arresting an innocent person dents were that the police pick on Ne-
rather than risk missing a criminal; and groes more, that they are rude to
65 per cent favored the ruling that Negroes, use brutality and physical
police may not question a suspect with- force, or else ignore Negroes more than
out his lawyer being present or the other people. Others expressed the be-
suspect’s consent to be questioned with- lief that affluent citizens get better treat-
out counsel. Most persons were in ment than the poor. In Washington,
favor of enlarging police powers on D.C., half of the persons interviewed
some issues and restricting it on others; agreed that people who have money for
only 25 per cent were consistently for lawyers do not have to worry about the
or against permitting greater powers to police. In Boston and Chicago, there
the police. was a tendency for citizens in the pre-
The surveys conducted for the Com- dominantly white districts to point out
mission found a strong concern for the rich and respectable citizens as recipi-
civil rights of the individual, including ents of more favorable treatment, while
the person who is a suspect or offender, citizens in the predominantly nonwhite
in spite of a wish for strict law en- districts pointed to the less favorable
forcement. This is particularly appar- treatment of Negroes by police.37
ent when the issue of rights is explicit. When another issue was posed in eco-
In the districts studied in Boston, Chi- nomic rather than racial terms, there
cago, and Washington, D.C., citizens was again a strong indication of concern
were asked whether they thought that with rights of the individual. Almost
&dquo;too much attention is being paid to three-quarters of the persons questioned
the rights of people who get into trouble by the NORC study approved the Su-
with the police.&dquo; 85 In each of the preme Court decision that the State
three cities, fewer than half (38 per must provide a lawyer to suspects who
cent) agreed. As was true concerning want one but cannot afford to pay the
the issue of police practices, this concern lawyer’s fee.38 Not only does a strong
for the individual was not derogatory majority approve the decision, but no
of the police. In Washington, D.C., income, sex, or racial group opposes it.
34NORC study, op. cit. 36
BSSR study, op. cit., p. 144.
BSSR study, op. cit., p. 149; and Reiss
35 37 Reiss studies, op. cit., pp. 43-47.
38 NORC
studies, op. cit., p. 82. study, op. cit., Table 40, p. 70.
they were not sure of what was taking cially on inadequate training and disci-
place at the time, or they did not know pline of young people. As a threat to
whether it was a crime or what was the the moral and social order, it becomes
proper procedure for reporting the inci- fearful even to persons who live in rela-
dent. For these persons, more knowl- tively safe circumstances and have no
edge of what constitutes reason for personal experience with crime.
calling the police and how to do so Although attributing an increase in
would probably increase the rate of crime to lowered moral standards, most
reporting. In those cities in which the persons would depend on the police and
police department is actively enlisting courts for stern treatment of offenders
the aid of the public, dissemination of in order to diminish the level of crime.
this information has been effective. Not as many, but nonetheless a sub-
Efforts to increase the rate of crime- stantial proportion, would recommend
reporting by citizens would have to take increased employment opportunities and
into account also the reluctance of most other improved social conditions to com-
to get involved, to take responsibility bat crime. Along with the reliance on
for reporting, and to be willing to spend law-enforcement officials, there was will-
time testifying. ingness to permit the police considerable
latitude in their efforts to apprehend
SUMMARY AND CONCLUSIONS and convict criminals. This apparent
Analysis of the findings of the public harshness toward offenders was immedi-
opinion polls and the surveys conducted ately mitigated when the issue of the
for the Commission indicates a wide- rights of the individual was posed.
spread concern about crime, both as a Some of this concern is related to the be-
national problem and as a problem in lief that there is discrimination against
assuring personal safety. Persons who economic and racial groups. Finally,
were interviewed expressed a belief that the recommendation for stern treatment
crime is increasing. They tend to equate of wrong-doers is further tempered when
crime with crimes of violence and to the fate of an individual offender is
fear most violence at the hands of considered.