It is a truism that crime statistics seldom reflect the real incidence of crime in a society. They are more often reflective of social values, of community priorities and of police procedures. A child who tells a police officer he has been relieved of a tenpence by a tougher child in the street may be sent home with a sympathetic pat on the head. Or he may be entered in the books as the victim of robbery with violence.
The annual report of the Garda Siochana for 1995, published yesterday, has to be viewed in this light. Its very nomenclature has altered significantly over recent years. It used to be called the Commissioner's Report on Crime. But modern police services recognise that as little as 20 per cent of their workload may relate to crime in some areas. Thus the role and performance of the Garda Siochana cannot be fully evaluated in columns of offences and detections. The report helpfully reminds us that the work of today's Garda Siochana ranges from road safety to overseas service with the United Nations.
1995 saw an increase of just 1 per cent in recorded crime, according to the Commissioner, Mr Patrick Culligan, who has since retired. It was the lowest rate of increase of this decade. But what these figures do not show is the hardening and deepening of professional criminal activity within the year. 1995 was the year when professional assassination became established as an almost monthly feature of life in the State's criminal underworld. Nor do the figures in relation to drug abuse and possession reflect the increasing professionalisation of the drugs trade and the criminal network which surrounds it. The figures are one dimensional rather than descriptive of reality on the ground.
These are some of the issues which to be considered by the review group under the examinership of Mr Tony Barry which is to examine the performance of the Garda. A police service's performance cannot be viewed in isolation from the functioning of the other elements of the criminal Justice system with which it has to function. There are societal factors too. What sort of performance does the community want? If it wants an environment which is totally crime free is it willing to accept the price that would be entailed both in cash and in restrictions upon personal freedom?
Experience abroad has some interesting lessons. In some countries, police services have found that responsiveness and follow up are more important to the citizen than actual detection of the criminal - especially in the less serious categories of crime. A simple letter from the police station, giving the name, of the investigating officer and any information which has come to light on the case, has been identified by the London Metropolitan Police as a major factor in reassuring crime victims and maintaining their confidence. In some US police studies it has emerged that response time (the length of time it takes for an officer to respond to a call for help) is more important to a victim than subsequently securing a conviction.
The argument leads back to the call from the Conroy Commission in 1970 for a redefinition of the Garda's role and purpose; and to the call from then Commissioner Culligan for public dialogue on its priorities. If an organisation does not have what is described in modern management jargon as a "mission statement" or a clear set of goals, it can hardly be expected to function with a sharp focus and with maximum efficiency. Too often in the past the standard political response to rising crime has been to throw more resources at the Garda. Mr Barry and his review group colleagues may be the instrument by which a new vision and a new clarity of purpose are secured for the national police service.