developing a community safety plan for jenin · national project. community safety is a goal which...

Developing a Community Safety Plan for Jenin

a centre for security,development andthe rule of law

Jenin GovernorateHuman Rights & Democracy

Media Center “Shams”


a centre for security,development andthe rule of law

About DCAF

The Geneva Centre for the Democratic Control of Armed Forces (DCAF) promotes good governance and reform of the security sector. The Centre conducts research on good practices, encourages the development of appropriate norms at the national and international levels, makes policy recommendations and provides in-country advice and assistance programmes. DCAF’s partners include governments, parliaments, civil society, international organisations and the core security and justice providers such as police, judiciary, intelligence agencies, border security services and the military.

DCAF has worked in the Palestinian Territories since 2005. It assists a wide range of Palestinian actors such as ministries, the Palestinian Legislative Council, civil society organisations and the media in their efforts to make Palestinian security sector governance democratic, transparent and accountable.

About SHAMS

The Human Rights & Democracy Media Center (SHAMS) is an independent, non-profit, non-governmental organisation. It was established in 2003 in Ramallah, Palestine, by a group of Palestinian academics, teachers, journalists, lawyers and human rights activists. SHAMS believes that human rights are protected by, and disseminated through the interdependence between civil, political, economic, social and cultural rights. SHAMS seeks to enhance the role of women and youth within the Palestinian society, and to consolidate the culture of human rights and tolerance in the framework of the rule of law.

Note

This report has been produced with the financial assistance of the Representative Office of the Federal Republic of Germany in Ramallah. The contents of this report do not necessarily reflect the opinion of the Federal Republic of Germany.

Editorial Board

Fareed A’merRoland FriedrichPeter HomelFatima ItawiIbrahim JaradatRegula KaufmannArnold LuetholdNicolas MassonOmar RahhalHaitham Al-SharifMayada Zeidani

Design and Layout

Wael Dwaik

Translation support

Yassin Al-Sayyed

Publisher

Geneva Centre for the Democratic Control of Armed Forces (DCAF)Rue de Chantepoulet 11P.O. Box 13601211 Geneva 1Switzerland

Tel: +41 (22) 741 77 00Fax: +41 (22) 741 77 05

www.dcaf.ch

Cover Picture:© Ma’moun Wazwaz

ISBN: 978-92-9222-293-2

© DCAF 2012. All rights reserved.

Contents

Foreword 4

Map of Jenin Governorate 5

Introduction 6

• DCAF-SHAMScontribution 6

• PartnershipsforcommunitysafetyinJenin 6

• Structureofthisreport 7

1. Defining the objectives of the community safety planning process 4 8

1.1. Defining ‘community safety’ 8

1.2. Performing a root-cause analysis of community safety issues 8

1.3. Deriving the objectives of the community safety planning process from the root-cause analysis 9

2. Developing a model community safety planning process 10

2.1. Inputs 10

2.2. Activities 10

2.3. Outputs 10

2.4. Outcomes 10

3. Deriving performance indicators and integrating them in a logical framework matrix 14

4. Next steps: Implementing the community safety plan (short-term activities) 18

5. Recommendations and conclusion 21

References 22

4

We have established a community safety council in the governorate of Jenin. The council is a working partnership between the governorate’s citizens and security forces. It offers an opportunity for involving civil society in discussing and solving community safety issues, in consistency with the rule of law, principles of amity and arbitration, and without resorting to violence.

Community safety is one of our most important objectives. It is crucial to consider this objective from several perspectives. The quest for solutions to our social conflicts implies that the principle of community safety must be thoroughly understood in order for it to be properly used to protect society from those who, within society or from outside, want to weaken it. We know that stability and security are key components of community safety. However, security is not established only with tactical procedures. Community safety should involve a real change of culture in society. Citizens need to believe in this concept and embrace it. In order to be successful, our project of establishing community safety has to be anchored in the Palestinian citizens’ culture and serve as a model for their daily lives. Therefore, this project should start with the family, the pillar of our society. Schools should also play a key role in strengthening community safety with the aim of developing our children’s sense of national belonging and understanding for the highest values of our society.

Security has become a shared responsibility between the citizens and the state. Community safety cannot be established without working partnerships between the security forces, civil society, formal and informal security and justice providers, tribal reconciliation mechanisms, courts and judges. The media are also a key factor contributing to raising citizens’ awareness about principles of community safety and the rule of law. As Palestinians, our task is made more difficult by the Israeli military occupation, which affects our security on a daily basis. The occupation imposes security chaos by weakening our security institutions, encouraging armed violence, and segregating Palestinian communities. This is the main challenge to our national project.

Community safety is a goal which we can only reach by abiding by the values of pluralism, tolerance and mutual understanding. We need to speak the common language of dialogue and respect for the rule of law. I would like to thank the Geneva Centre for the Democratic Control of Armed Forces (DCAF) and the Human Rights and Democracy Media Centre (SHAMS) for their efforts in establishing community safety in Jenin and for assisting us in developing our community safety strategic plan, which is presented in this publication.

Brigadier General Talal Dweikat

Governor of Jenin

Foreword

5


Map of Jenin Governorate *

Population 288,511

Jenin city residents 43,851

Area 583 km2

Governor Talal Dweikat

Refugee camps Far’a (8,441 refugees), Jenin (18,292 refugees)

Number of Israeli settlements 5

Number of Israeli settlers 2,345

* Source: Map: Office of the Coordination of Humanitarian Affairs (OCHA); Data: Jenin Governorate

7

Jenin Governorate

Population: 256,212 Area: 583 sq kmGovernor: Dr. Qadoura MousaPLC members: • Constituency(4):KhalidYahya(Hamas)*,Azzamal-Ahmad(Fateh),

KhalidAbuHasan(Hamas)*,ShamiShami(Fateh).• Partylist(2):JamalMuhammadAbual-Rub(Fateh),IbrahimMohammad

Dahboor(Hamas)*.Refugees: • Jeninrefugeecamp(15,854refugees)

• Faraárefugeecamp(7,540refugees).Settlements: Henanit,Sheqid,Rehan,Hermesh,MivoDotan(totalnumberofsettlers:

2,124).Checkpoints: YaábadMevoDotan,RilkhanBartaá.Green line checkpoints: AlJalama,SalemDCL.

*CurrentlyimprisonedbyIsrael

Sources:PalestinianCentralBureauforStatistics,UNRWA,OCHA,PalestinianNationalAuthority.

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6

Between 2008 and 2010, the Geneva Centre for the Democratic Control of Armed Forces (DCAF) and the Human Rights and Democracy Media Center (SHAMS) facilitated a number of town hall meetings and focus group sessions with community stakeholders in several governorates of the West Bank, including Jenin. These workshops brought together representatives of the Palestinian executive authorities, the Palestinian Legislative Council (PLC), the core security and justice providers, the judiciary, tribal reconciliation committees, civil society and the media. The discussions aimed to assess the people’s perceptions on the delivery of security by the Palestinian service providers.1

As a result of these discussions and based on the Governor of Jenin’s request, community safety partners in Jenin engaged in a comprehensive community safety planning process with the support of DCAF and SHAMS.

This report presents the main steps, outputs and outcomes of this process.

DCAF and SHAMS contribution In the framework of the Jenin community safety planning process, DCAF and SHAMS:

• Facilitated consultationmeetingswith keyJenin community stakeholders to identify and map their expectations concerning community safety (July-November 2011)

• Trained Jenin community stakeholders onprinciples of community safety, the rule of law, strategic planning and management (December 2011-January 2012)

1 DCAF and SHAMS summarised the recommendations formulated in these consultations in a documentary feature entitled, Challenges to Community Safety and the Rule of Law (2012).

• Assisted Jenin community stakeholdersin developing a community safety plan (February-December 2012)

Partnerships for community safety in Jenin

As an immediate output of the process facilitated by DCAF and SHAMS, the late Governor of Jenin, Qaddoura Moussa on 22 December 2011 officially announced2 the creation of the following five ad-hoc community safety committees:

• Thecommitteeforeducation

• Thecommitteeforhighereducation

• The committee for family and individualprotection

• Thecommitteefortribalaffairs

• The committee for awareness andbehavioural guidance

Each of the five committees includes up to 17 representatives of the Palestinian executive authorities, the security forces, the judicial and legislative authorities, civil society, academic centres, religious figures and informal reconciliation mechanisms.

Between January and July 2012, DCAF and SHAMS engaged in a comprehensive and inclusive community safety planning process with the Jenin community safety committee members. DCAF and SHAMS facilitated several workshops on strategic planning and management related to community safety and 2 See “Announcing the Establishment of Community

Safety Committees in Jenin Governorate”, in: Maan News Agency, 22.11.2011, available: http://www.maannews.net/arb/ViewDetails.aspx?ID=447137

Introduction

http://www.maannews.net/arb/ViewDetails.aspx?ID=447137


7


the rule of law. The participants identified the main problems affecting community safety in the governorate and formulated short-, medium- and long-term objectives for overcoming these issues. The results of this process are described under section 1 of this publication.

In September 2012, the successor of the late Qaddoura Moussa, Brigadier General Talal Dweikat approved the establishment of a permanent community safety steering committee, under the supervision of the Governor’s office of Jenin. The steering committee’s function is to lead the community safety planning process, to supervise the work of the community safety partners, and to manage all information gathering and communication processes related to community safety. The steering committee includes the following institutions and members:

• A representative of the Jenin Governor’sOffice

• AnofficerofthePalestinianCivilPolice

• An officer of the Preventive SecurityOrganisation

• A representative of the Ministry ofWomen’s Affairs

• A representative of the Ministry of SocialAffairs

• A representative of the Ministry ofReligious Endowments (Awqâf)

• A representative of the Ministry of Youthand Sports

• A representative of the Directorate forEducation in Jenin

• A representative of the Directorate forEducation in Qabatiya

• A higher representative of the tribalreconciliation committees in Jenin

• ArepresentativeoftheNationalBloc

• A representative of the PalestinianLegislative Council (PLC)

During a workshop on 12 December 2012, DCAF and SHAMS presented to the community safety steering committee members in Jenin the results of the community safety planning process conducted in 2012 with the community safety

committee members. The strategic community safety plan for Jenin was subsequently validated and approved by the Governor.

Structure of this report

The structure of this report reflects the three-step approach which the Jenin community safety partners adopted for the community safety planning process facilitated by DCAF and SHAMS. This three-step approach to community safety strategic planning is consistent with model community safety and crime prevention frameworks developed in other jurisdictions.3

The first three sections of the report describe in details each of the three steps of the Jenin community safety planning process:

Section 1 Establishing and agreeing on the objectives of the community safety planning process

Section 2 Developing a model community safety planning process

Section 3 Deriving performance indicators from that model and integrating them in a logical framework matrix

In addition, Section 4 presents suggested next steps for implementing the community safety plan.

Finally, Section 5 presents the main conclusions and recommendations from the Jenin community safety planning process.

AcknowledgementsThis report would not have been possible without the active participation of the members of the Jenin community safety council and its steering committee. DCAF, SHAMS and the Office of the Governor of Jenin express their sincere gratitude to all those who discussed the methodology and the findings of this report.

DCAF, SHAMS and the Office of the Governor of Jenin would like to thank Professor Peter Homel of Griffith University, Queensland, Australia, for providing his practical and conceptual support and for reviewing this publication.

3 See Homel and Morgan (2011), p. 24, based on a generic process developed by Schacter (2002).

8

This section discusses the steps that were taken to define the long-term, medium- term and short-term objectives of the Jenin community safety planning process. It also provides an overview of the various strategic planning and management tools which the stakeholders used to identify these objectives.

Stakeholders agreed that in order to establish the objectives of the community safety planning process, the following three operations had to be conducted:

0.1. Defining the term ‘community safety’

0.2. Performing a root-cause analysis of the community safety issues

0.3. Deriving the objectives of the community safety planning process from the r o o t -cause analysis

1.1. Defining ‘community safety’ DCAF and SHAMS facilitated two brainstorming sessions with Jenin community safety stakeholders. The aim was to agree on a common definition of the term ‘community safety’. The participants were also provided with the definition adopted by community safety partners in Hebron.4 They agreed that this definition was acceptable but proposed a different one that would suit the Jenin context better. Finally, consensus was reached over the following definition of ‘community safety’, as applicable in Jenin governorate:

“Community safety refers to an environment, in which all individuals in the society can live in peace and security according to their values and traditions under the rule of law. It refers to a

4 See: Developing a Community Safety Plan for Hebron, Geneva: DCAF, 2012.

culture of tolerance that starts in the family and is transmitted through the education system. Community safety refers to a framework in which formal or informal justice providers resolve cases of abuses and violence by legal or traditional arbitration mechanisms”.5

On the basis of this contextualized definition, the stakeholders concluded that there was a lack of community safety in Jenin governorate. The following section discusses in detail the reasons for this perception.

1.2. Performing a root-cause analysis of community safety issues

DCAF and SHAMS helped the stakeholders to identify the main reasons for the lack of community safety in Jenin. The stakeholders identified the following elements:

• Unstable socio-economic and political environment: This was characterised by:

− severe youth unemployment

− absence of a strong culture of tolerance and respect among citizens

− recurrent tensions between political factions

• Insecurity in the public and private spheres. This was characterized by:

− threats by Israeli soldiers and settlers

− exposure to crime, bullying, harassment and victimization

5 Best international practice defines community safety as “an aspect of the quality of people’s lives in which the risk from a range of social harms such as crime, be it real or perceived, is minimized”, Ekblom and Wyvekens (2004).

1. Defining the objectives of the community safety planning process

9


− conflicts between individuals or families on issues related to honour, land and property ownership and personal status issues

• Inadequacy of the response mechanisms. This was characterized by:

− lack of knowledge-based strategies to prevent crime

− absence of effective partnerships between law enforcement agencies and civil society

− weakness of the legal framework for crime prevention

− predominance of traditional (or ‘tribal’) reconciliation systems that are inconsistent with standards of the rule of law

− lack of infrastructure and safe areas (such as shelters for female victims of abuse)

− lack of information strategies that are conducive to preventive behaviour

The stakeholders were not aware of any community safety audit being performed in the governorate. They acknowledged that such an audit would help consolidate their perceptions and devise the appropriate evidence-based response to the lack of community safety.6 With the help of DCAF and SHAMS, the stakeholders grouped the issues affecting community safety under the following categories:

Environment (or: external factors affecting community safety)

• Israelimilitaryoccupation,settlementsandsettler violence

• Geographicfragmentation(“Oslo”zonesA,B, C)

• Lackof Palestinian sovereignty andaccessto all areas

• Deteriorating economic situation andrampant unemployment

• Absence of a culture of tolerance andrespect in the society

6 For some indications on citizens’ safety perceptions in the West Bank (including Jenin), see: PCBS (2011).

Systems (or: the institutional and legal framework for security and justice)

• Lack of clarity of the Palestinian legalframework for crime prevention and criminal justice

• Lack of cooperation between formal andinformal security and justice providers

• Predominance of traditional (“tribal”)conflict resolution mechanisms, which are not consistent with key principles of the rule of law

• Lack of community safety and rule of lawprinciples in educational materials used in schools

People (or: the key beneficiaries and actors involved in community safety)

• Lack of understanding of and respect forthe principles of the rule of law

• Lack of training for community safetyactors

Processes (or: the mechanisms for community safety actors to cooperate)

• Absence of evidence-based communitysafety interventions

• Absence of results-oriented responses toinsecurity and victimization

• Absence of working partnerships forcommunity safety

• Absence of a community safetyinformation strategy

1.3. Deriving the objectives of the community safety planning process from the root-cause analysis

On the basis of the root-cause analysis, DCAF and SHAMS asked the Jenin community safety stakeholders to agree on the high-level (or long-term) objective of the community safety planning process.

Long-term objective

The stakeholders agreed on the following long-term objective (or goal) of the Jenin community safety planning process:

10

Community safety in Jenin is improved through community safety partners’ initiatives aiming at solving key issues affecting citizens’ safety under the rule of law, in a spirit of tolerance for everyone’s beliefs and traditions and without resorting to violence

Stakeholders in Jenin expected the community safety planning process to contribute to achieving this goal. They agreed to identify realistic short-term and medium-term outcomes that can be achieved relatively independently of the external factor mentioned under 1.2. above. They further agreed to develop outcomes that are achievable and measurable through the community safety plan.7

Short-term and medium-term objectives

DCAF and SHAMS helped the stakeholders to identify the short-term and medium-term outcomes of the community safety process. To do so, stakeholders developed an objective tree.

The short-term and medium-term outcomes presented in the objective tree are directly linked to the issues identified in the root-cause analysis.

The following page shows the Jenin community safety objective tree.

7 This approach to planning for community safety was consistent with best international practice. See Schacter (2002) and Morgan and Homel (2011), p. 26 and 37.

11


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12

This section presents a model of the Jenin community safety planning process. The purpose of the model is to describe “how the inputs, processes [or activities], outputs and outcomes fit together in a logical sequence and how the various stages in the planning process contribute to desired outcomes”.8 Here is a brief description of each of the elements of the model:

2.1. InputsThe model presents the inputs provided by DCAF, SHAMS and the Jenin Governor’s Office in the initial phase of the planning process. These inputs include the consultation activities, which are described in the introduction of this report and in Figure 2. They also include the publications which DCAF and SHAMS distributed to the Jenin community safety partners.9 Finally, the inputs include the contributions made by international experts who reviewed and monitored the planning process.

2.2. ActivitiesThe model describes the activities which DCAF, SHAMS and the Governor’s Office have conducted at the time of writing and those that will take place in the coming two years to produce the planned outputs of the community safety planning process. These activities include:

• Developing a strategic community safetyplan for Jenin

• Developing and delivering a trainingprogramme for community safety partners

• Developing and implementing acommunity safety audit framework

8 See Morgan and Homel (2011).9 A list is provided in the References section of this report.

• Establishingacommunitysafetydatabase• Reviewing the framework for promoting

principles of community safety and the rule of law in education materials used in primary and secondary schools in the governorate

• Developing a community safetyinformation strategy

2.3. OutputsThe model includes the planned outputs of the activities undertaken by DCAF, SHAMS and the Governor’s Office. These outputs are:

• The community safety partnershipagreement

• Thecommunitysafetysteeringcommittee• Thecommunitysafetyplan• A performance measurement framework,

which shall assist the efficient and effective implementation of the plan

Note that the performance measurement framework is meant as being subsidiary to the community safety plan. As such, it is not described in details in this report.

2.4. OutcomesThe model for the community safety planning process for Jenin (Figure 2) integrates the hierarchy of short, medium and long-term outcomes already presented in the objective tree (Figure 1 above).

2. Developing a model community safety planning process

13


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an fo

r Jen

in in

coo

pera

tion

with

key

st

akeh

olde

rs

Dev

elop

ing

and

impl

emen

ting

a co

mm

unity

saf

ety

audi

t fra

mew

ork

for

Jeni

n

Mak

ing

reco

mm

enda

tions

to

impr

ove

the

data

co

llect

ion

syst

em

Com

mun

ity s

afet

y pa

rtne

rs’

w

ork

is b

ased

on,

and

pro

duce

s so

lid q

uant

itativ

e an

d qu

alita

tive

evid

ence

rela

ted

to in

secu

rity

and

vict

imiz

atio

n

DCA

F-SH

AM

S G

over

nor's

Offi

ce

Com

mun

ity s

afet

y in

form

atio

n st

rate

gy

Out

com

es (2

012-

2013

) Pu

rpos

e (2

013-

2015

) G

oal (

2020

)

Co

mm

unity

saf

ety

in

Jeni

n is

impr

oved

th

roug

h co

mm

unity

pa

rtne

rs’

initi

ativ

es

aim

ing

at s

olvi

ng k

ey

issu

es a

ffect

ing

citiz

ens’

sa

fety

und

er th

e ru

le o

f la

w, i

n a

spiri

t of

tole

ranc

e fo

r eve

ryon

e’s

belie

fs a

nd tr

aditi

ons

and

with

out r

esor

ting

to

viol

ence

Inte

rnat

iona

l ex

pert

s

Com

mun

ity s

afet

y Au

dit

Com

mun

ity s

afet

y tr

aini

ng p

rogr

amm

e

Com

mun

ity s

afet

y da

taba

se

Com

mun

ity s

afet

y pa

rtne

rs

are

trai

ned

in s

tand

ards

of t

he

rule

of l

aw a

nd p

rinci

ples

of

com

mun

ity s

afet

y

Com

mun

ity s

afet

y pa

rtne

rs'

inte

rven

tions

are

con

sist

ent

with

sta

ndar

ds o

f the

rule

of l

aw

and

prin

cipl

es o

f com

mun

ity

safe

ty

Com

mun

ity s

afet

y pa

rtne

rshi

p ag

reem

ent

Dev

elop

ing

a pe

rfor

man

ce

mea

sure

men

t fra

mew

ork

Perf

orm

ance

Mea

sure

men

t Fra

mew

ork

Revi

sitin

g th

e m

ater

ials

use

d in

the

scho

ol s

yste

m fo

r tea

chin

g pr

inci

ples

of

com

mun

ity s

afet

y an

d th

e ru

le o

f law

Com

mun

ity s

afet

y an

d ru

le o

f law

new

teac

hing

to

ols

Com

mun

ity s

afet

y pa

rtne

rs’

in

terv

entio

ns p

rovi

de re

sults

-or

ient

ed re

spon

ses

to in

secu

rity

and

vict

imiz

atio

n ac

cord

ing

to

iden

tified

prio

ritie

s

Com

mun

ity s

afet

y pa

rtne

rs id

entif

y pr

iorit

ies

and

resu

lts-o

rient

ed re

spon

ses

to in

secu

rity

and

vict

imiz

atio

n

New

teac

hing

tool

s ar

e de

velo

ped

in o

rder

to

furt

her e

mph

asis

e pr

inci

ples

of c

omm

unity

saf

ety

and

the

rule

of l

aw in

prim

ary

and

seco

ndar

y sc

hool

cur

ricul

a

Key

prin

cipl

es o

f com

mun

ity

safe

ty a

nd th

e ru

le o

f law

are

ta

ught

in p

rimar

y an

d se

cond

ary

scho

ols

14

This section presents the various components of the Jenin community safety plan, which is the main output of the planning process.

The plan is presented in form of a logical framework matrix. The matrix integrates the short-term, medium-term and long-term objectives identified above. It also presents the performance indicators, sources of verification and assumptions related to each of these objectives.

The logical framework matrix, which constitutes the Jenin community safety plan for the period 2012-2020, is meant as a strategic framework rather than a static plan. It should allow accommodating changes in priorities as they occur.

The matrix is structured as follows:

The left column of the matrix includes:

The short, medium, and long-term objectives of the community safety plan in logical sequence (to be read from bottom to top)

The two middle columns of the matrix include:

The performance indicators and the sources of verification, which are necessary to measure the achievement of each of the short, medium and long-term objectives of the community safety plan

The right column of the matrix includes:

The external conditions that must exist in order to achieve the objectives of the community safety plan

The various short-term activities recommended by DCAF and SHAMS for achieving the objectives of the community safety plan are described in Section 4 below.

3. Deriving performance indicators and integrating them in a logical framework matrix

15

Developing a Community Safety Plan for JeninTh

e Je

nin

Com

mun

ity

Safe

ty P

lan

(201

2-20

20)

OBJ

ECTI

VES

MEA

SURE

SV

ERIF

ICAT

ION

A

SSU

MPT

ION

S

GO

AL

(BY

2020

)

Com

mun

ity s

afet

y in

Jeni

n is

im

prov

ed th

roug

h co

mm

unity

pa

rtne

rs’ in

itiat

ives

aim

ing

at

solv

ing

key

issu

es a

ffect

ing

citiz

ens’

safe

ty u

nder

the

rule

of

law

, in

a sp

irit o

f tol

eran

ce

for e

very

one’

s be

liefs

and

tr

aditi

ons

and

with

out

reso

rtin

g to

vio

lenc

e

GO

AL

MEA

SURE

1.

The

num

ber o

f inc

iden

ts re

late

d to

inse

curit

y an

d vi

ctim

izat

ion

decr

ease

s fr

om _

___

in 2

015

to _

___

in 2

020

2.

The

num

ber o

f com

mun

ity s

afet

y pa

rtne

rs’

inte

rven

tions

dec

reas

es fr

om _

___

in 2

015

to _

___

in 2

020

3.

The

num

ber o

f ini

tiativ

es ta

ken

by th

e co

mm

unity

to

pre

vent

crim

e an

d vi

ctim

izat

ion

with

out

com

mun

ity s

afet

y pa

rtne

rs’ in

terv

entio

n in

crea

ses

from

___

_ in

201

5 to

___

_ in

202

0. T

his

incl

udes

:

− In

crea

sing

num

ber o

f inc

iden

ts th

at a

re s

olve

d by

th

e co

mm

unity

and

repo

rted

− In

crea

sing

num

ber o

f ini

tiativ

es b

y lo

cal c

ivil

soci

ety

and

acad

emic

inst

itutio

ns fo

r pro

mot

ing

the

rule

of l

aw

1.

PCBS

vio

lenc

e su

rvey

s 20

13-2

020

/ pol

ice

stat

istic

s / g

over

nor’s

offi

ce d

atab

ase

(GO

DB)

2.

GO

DB

3.

GO

DB

/ Qua

rter

ly re

port

s / M

edia

repo

rts

/Rep

orts

by

civ

il so

ciet

y an

d ac

adem

ic in

stitu

tions

16

OBJ

ECTI

VES

MEA

SURE

SV

ERIF

ICAT

ION

A

SSU

MPT

ION

S

PURP

OSE

OF

THE

PLA

N (B

Y 20

15)

1.

Com

mun

ity s

afet

y pa

rtne

rs’ in

terv

entio

ns a

re

cons

iste

nt w

ith s

tand

ards

of

the

rule

of l

aw a

nd

prin

cipl

es o

f com

mun

ity

safe

ty

2.

Com

mun

ity s

afet

y pa

rtne

rs’ in

terv

entio

ns

prov

ide

resu

lts-o

rient

ed

resp

onse

s to

inse

curit

y an

d vi

ctim

izat

ion

acco

rdin

g to

iden

tified

pr

iorit

ies

3.

Com

mun

ity s

afet

y pa

rtne

rs’ w

ork

is b

ased

on

, and

pro

duce

s so

lid q

uant

itativ

e an

d qu

alita

tive

evid

ence

re

late

d to

inse

curit

y an

d vi

ctim

izat

ion

4.

Com

mun

ity s

afet

y pa

rtne

rs p

rom

ote

and

repo

rt p

reve

ntiv

e be

havi

our a

mon

g co

mm

unity

mem

bers

5.

Key

prin

cipl

es o

f co

mm

unity

saf

ety

and

the

rule

of l

aw a

re ta

ught

in

prim

ary

and

seco

ndar

y sc

hool

s

PURP

OSE

MEA

SURE

S 1.

Th

e nu

mbe

r of i

nter

vent

ions

repo

rted

con

sist

ent

with

sta

ndar

ds o

f the

rule

of l

aw a

nd p

rinci

ples

of

com

mun

ity s

afet

y in

crea

ses

from

___

_ in

201

3 to

__

__ in

201

5

2.

The

num

ber o

f int

erve

ntio

ns w

hich

pro

duce

po

sitiv

e re

sults

to th

e id

entifi

ed p

riorit

ies

incr

ease

s fr

om _

___

in 2

013

to _

___

in 2

015

3.

a) T

he n

umbe

r of h

ours

in w

hich

the

data

base

is

bein

g us

ed in

crea

ses

from

___

_ pe

r wee

k in

201

3 to

___

_ pe

r wee

k in

201

5

b)

The

num

ber o

f com

mun

ity s

afet

y in

terv

entio

ns th

at a

re d

ocum

ente

d in

the

gove

rnor

ates

’ com

mun

ity s

afet

y da

taba

se

incr

ease

s fr

om _

___

in 2

013

to _

___

in 2

015;

In th

e sa

me

perio

d, th

e nu

mbe

r of i

nter

vent

ions

that

are

no

t rep

orte

d in

the

GO

DB

decr

ease

s fr

om _

___

to

____

4.

a) T

he n

umbe

r of a

ctiv

ities

con

duct

ed b

y th

e co

mm

unity

saf

ety

part

ners

that

are

repo

rted

in

the

loca

l and

nat

iona

l med

ia, a

s w

ell a

s th

roug

h tr

aditi

onal

com

mun

icat

ion

mea

ns in

crea

ses

from

__

__ in

201

3 to

___

_ in

201

5

b)

The

num

ber o

f rep

orte

d pr

even

tive

initi

ativ

es

take

n by

the

com

mun

ity w

ithou

t par

ticip

atio

n by

co

mm

unity

saf

ety

part

ners

incr

ease

s fr

om _

___

in

2013

to _

___

in 2

015

5.

The

num

ber o

f hou

rs d

edic

ated

to c

ivic

edu

catio

n,

whi

ch in

clud

e pr

inci

ples

of t

he ru

le o

f law

and

co

mm

unity

saf

ety,

incr

ease

s fr

om _

____

_ in

201

3 to

___

____

__ in

201

5

1.

GO

DB;

citi

zens

’ fe

edba

ck; m

edia

co

vera

ge a

s re

port

ed in

th

e co

mm

unity

saf

ety

obse

rvat

ory

(ww

w.

mar

sadp

al.in

fo)

2.

GO

DB

3.

GO

DB;

Com

mun

ity s

afet

y ob

serv

ator

y (w

ww

.m

arsa

dpal

.info

)

4.

Com

mun

ity s

afet

y ob

serv

ator

y (w

ww

.m

arsa

dpal

.info

) sta

tistic

s

5.

New

teac

hing

tool

s ad

ded

to p

rimar

y an

d se

cond

ary

scho

ol

curr

icul

a an

d ad

opte

d fo

r th

e ye

ars

2014

and

201

5

ASS

UM

PTIO

NS

TO A

CHIE

VE

GO

AL

1.

No

maj

or in

cide

nts

occu

r whi

ch

incr

ease

the

popu

larit

y or

vi

abili

ty o

f alte

rnat

ive

resp

onse

s to

crim

e an

d vi

ctim

izat

ion

that

ar

e in

cons

iste

nt w

ith s

tand

ards

of

the

rule

of l

aw

2.

The

stru

ctur

e w

ithin

the

Gov

erno

r’s o

ffice

that

dea

ls

with

com

mun

ity s

afet

y is

sues

is

mai

ntai

ned;

it re

ceiv

es th

e ne

cess

ary

budg

et a

nd s

taffi

ng

as id

entifi

ed in

the

plan

ning

ph

ase

3.

The

Gov

erno

r’s o

ffice

ens

ures

th

at th

e te

chno

logy

to ru

n th

e da

taba

se is

up

to d

ate

and

keep

s th

e da

taba

se s

ecur

ed a

nd

runn

ing

4.

The

med

ia fr

eely

repo

rt th

e co

mm

unity

saf

ety

part

ners

’ ac

tiviti

es; r

epor

ting

is m

ade

in a

way

that

is c

ondu

cive

to

cha

nges

in p

reve

ntiv

e be

havi

our

5.

Aut

horit

ies

in c

harg

e of

pr

imar

y an

d se

cond

ary

educ

atio

n in

the

gove

rnor

ate

adop

t the

new

teac

hing

tool

s

http://www.marsadpal.info






17


OBJ

ECTI

VES

MEA

SURE

SV

ERIF

ICAT

ION

A

SSU

MPT

ION

S

OU

TCO

MES

(201

2-20

13)

1.

Com

mun

ity s

afet

y pa

rtne

rs a

re tr

aine

d in

st

anda

rds

of th

e ru

le o

f la

w a

nd p

rinci

ples

of

com

mun

ity s

afet

y

2.

Com

mun

ity s

afet

y pa

rtne

rs id

entif

y pr

iorit

ies

and

resu

lts-o

rient

ed

resp

onse

s to

inse

curit

y an

d vi

ctim

izat

ion

3.

A c

omm

unity

saf

ety

base

line

data

col

lect

ion

syst

em, w

hich

gat

hers

qu

antit

ativ

e an

d qu

alita

tive

info

rmat

ion

rela

ted

to in

secu

rity

and

vict

imiz

atio

n, is

run

by th

e go

vern

or’s

office

4.

A c

omm

unity

saf

ety

info

rmat

ion

stra

tegy

is

impl

emen

ted

to

tran

slat

e ev

iden

ce-

base

d kn

owle

dge

abou

t ins

ecur

ity a

nd

vict

imiz

atio

n in

to

prev

entiv

e be

havi

our

5.

New

teac

hing

tool

s ar

e de

velo

ped

in o

rder

to

furt

her e

mph

asis

e pr

inci

ples

of c

omm

unity

sa

fety

and

the

rule

of l

aw

in p

rimar

y an

d se

cond

ary

scho

ol c

urric

ula

OU

TCO

ME

MEA

SURE

S1.

Th

e nu

mbe

r of J

enin

Com

mun

ity S

afet

y Pa

rtne

rs

who

are

abl

e to

suc

cess

fully

app

ly s

tand

ards

of

the

rule

of l

aw a

nd p

rinci

ples

of c

omm

unity

saf

ety

incr

ease

s fr

om _

___

in 2

012

to u

p to

62

in 2

013

(80%

of t

he p

artic

ipan

ts)

2.

The

num

ber o

f res

ults

-orie

nted

inte

rven

tions

pl

anne

d by

the

com

mun

ity s

afet

y pa

rtne

rs

acco

rdin

g to

the

prio

ritie

s id

entifi

ed in

the

com

mun

ity s

afet

y au

dit i

ncre

ases

from

___

_ in

20

12 to

___

_ in

201

3

3.

The

num

ber o

f hou

rs in

whi

ch th

e da

taba

se is

be

ing

used

incr

ease

s fr

om _

___

per w

eek

in 2

012

to _

___

per w

eek

in 2

013

4.

The

num

ber o

f act

iviti

es c

ondu

cted

by

the

com

mun

ity s

afet

y pa

rtne

rs th

at a

re re

port

ed in

th

e lo

cal a

nd n

atio

nal m

edia

, as

wel

l as

thro

ugh

trad

ition

al c

omm

unic

atio

n m

eans

incr

ease

s fr

om

____

in 2

012

to _

___

in 2

013

5.

By th

e en

d of

201

3, n

ew te

achi

ng to

ols

are

draf

ted

to b

e ad

ded

to e

xist

ing

prim

ary

and

seco

ndar

y sc

hool

cur

ricul

a ar

e su

bmitt

ed to

the

Min

istr

y of

Ed

ucat

ion

1.

a. T

rain

ing

part

icip

ants

’ lis

t

b. P

re-t

est /

pos

t tes

t re

sults

c. C

ertifi

cate

s

2.

a. C

omm

unity

saf

ety

audi

t res

ults

b.

b. G

OD

B

3.

a. D

atab

ase

impl

emen

tatio

n sh

eet

4.

a. M

edia

repo

rts

b. M

osqu

e se

rmon

s an

d ot

her t

radi

tiona

l med

ia

repo

rts,

as re

port

ed in

th

e co

mm

unity

saf

ety

obse

rvat

ory

(ww

w.

mar

sadp

al.in

fo)

5.

a. N

ew te

achi

ng to

ols

for

prim

ary

and

seco

ndar

y sc

hool

cur

ricul

a

ASS

UM

PTIO

NS

TO A

CHIE

VE

PURP

OSE

1.

Betw

een

80 a

nd 1

00%

of

com

mun

ity s

afet

y pa

rtne

rs

part

icip

ate

in th

e tr

aini

ng

prog

ram

me

and

rela

ted

pre-

test

/ po

st-t

est a

ctiv

ities

2.

Com

mun

ity s

afet

y pa

rtne

rs’

acce

pt th

e pr

iorit

ies

iden

tified

by

the

com

mun

ity s

afet

y au

dit

and

desi

gn in

terv

entio

ns

acco

rdin

gly

3.

The

gove

rnor

’s offi

ce

empl

oyee

s in

cha

rge

of u

sing

th

e da

taba

se d

uly

fill i

n th

e im

plem

enta

tion

shee

t

4.

The

com

mun

ity s

afet

y pa

rtne

rs’

activ

ities

that

are

rela

yed

by

mai

nstr

eam

and

trad

ition

al

med

ia a

re a

ll re

port

ed in

the

com

mun

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This section presents the various short-term activities which DCAF and SHAMS recommend undertaking for implementing the Jenin community safety plan and achieving its objectives in 2012-2013.

For each of the recommended activities, references to the 2002 United Nations Guidelines for the Prevention of Crime10 are provided. These references illustrate the consistency of the proposed steps with international best practice for effective crime prevention and community safety.

4. Next steps: Implementing the community safety plan (short-term activities)

4.1. Training the Jenin community safety partners in standards of the rule of law and principles of community safety 10

Activities in the short-term:

• Performing an assessment of the community safety partners’ training and capacity buildingneeds in terms of standards of the rule of law and principles of community safety

• Developingatrainingprogramme,whichtargetscommunitysafetypartners,aimsatincreasingtheir crime prevention skills, involves local educational agencies and comprises certification processes

• Runningthetrainingprogrammeandevaluatingparticipants’knowledgeacquisition

Related short-term outcome as outlined in the community safety plan:

• Community safety partners are trained in standards of the rule of law and principles ofcommunity safety

Related medium-term purpose as outlined in the community safety plan:

• Community safety partners’ interventions are consistentwith standards of the rule of law andprinciples of community safety

What do the 2002 United Nations Guidelines for the Prevention of Crime stipulate?

Art. 12: “The rule of law and those human rights which are recognized in international instruments to which Member States are parties must be respected in all aspects of crime prevention. A culture of lawfulness should be actively promoted in crime prevention.”

Art. 18: “Governments should support the development of crime prevention skills by:

(a) Providing professional development for senior officials in relevant agencies;(b) Encouraging universities, colleges and other relevant educational agencies to offer

basic and advanced courses, including in collaboration with practitioners;(c) Working with the educational and professional sectors to develop certification and

professional qualifications;(d) Promoting the capacity of communities to develop and respond to their needs.”

10 The full text of the UN Guidelines is available in DCAF-SHAMS (2009 - 2010). See References (below).

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4.2. Performing a community safety audit

Activities in the short-term:

• Designingacommunitysafetyauditprocess,whosepurposeistogainbetterunderstandingofinsecurity and victimization in Jenin, related problems and their causes

• Implementingthecommunitysafetyauditprocess• Analysing theaudit results and sharing themwith thecommunity safety stakeholdersand the

wider community in order to inform appropriate results-oriented responses to insecurity and victimization


•Community safety partners identify priorities and results-oriented responses to insecurity andvictimization


• Community safety partners’ interventions provide results-oriented responses to insecurity andvictimization according to identified priorities


Art. 21: “As appropriate, Governments and/or civil society should facilitate knowledge-based crime prevention by, inter-alia:

(b) Supporting the generation of useful and practically applicable knowledge that is scientifically reliable and valid;

(g) Promoting the application of those data in order to reduce repeat victimization, persistent offending and areas with a high level of crime.”

4.3. Establishing a community safety database at the Governor’s office

Short-term activities:

• Assessing the available data collection system in place at the Governor’s office for gatheringquantitative and qualitative data related to insecurity and victimization

• Presentingrecommendationstoimprovethedatacollectionsystem• RunninganewcommunitysafetydatabaseattheGovernor’soffice


• Acommunitysafetybaselinedatacollectionsystem,whichgathersquantitativeandqualitativeinformation related to insecurity and victimization, is run by the governor’s office


• Community safety partners’work is based on, and produces solid quantitative and qualitativeevidence related to insecurity and victimization



(c) Supporting the organization and synthesis of knowledge and identifying and addressing gaps in the knowledge base;

(f ) Establishing data systems to help manage crime prevention more cost-effectively, including by conducting regular surveys or victimization and offending.”

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4.4. Establishing a community safety information strategy


• AssessingtheavailablecommunitysafetyinformationsysteminplaceattheGovernor’soffice• Developingacommunitysafetyinformationstrategywithaviewtotranslatingevidence-based

knowledge about insecurity and victimization into preventive behaviour• Implementingthecommunitysafetyinformationstrategy• Establishingandrunningacommunitysafetyonlineobservatory(www.marsadpal.info)


• Acommunitysafetyinformationstrategyisimplementedtotranslateevidence-basedknowledgeabout insecurity and victimization into preventive behaviour


• Communitysafetypartnerspromoteandreportpreventivebehaviouramongcommunitymembers

Reference in the 2002 United Nations Guidelines for the Prevention of Crime:


(a) Providing the information necessary for communities to address crime problems;(d) Sharing that knowledge, as appropriate, among, inter alia, researchers, policy makers,

educators, practitioners from other relevant sectors and the wider community.”

4.5. Promoting a culture of the rule of law and community safety through education


• Revisiting theprimary and secondary schoolprogrammes in thegovernorateof Jenin’s schoolsystem

• Identifying, in theprimaryandsecondary schoolprogrammes, the topics related to the ruleoflaw and community safety that should be emphasised in the teaching tools for primary and secondary schools

• Formulating recommendations on how to improve the primary and secondary schoolprogrammes with a view to addressing the existing gaps and promoting a culture of the rule of law and community safety

• Adopting new teaching tools on the rule of law and community safety to be added to theexisting primary and secondary school programmes in light of the recommendations made


• Newteachingtoolsaredevelopedinordertofurtheremphasiseprinciplesofcommunitysafetyand the rule of law in primary and secondary school curricula


• Keyprinciplesofcommunitysafetyandtheruleoflawaretaughtinprimaryandsecondaryschools

Reference in the 2002 United Nations Guidelines for the Prevention of Crime:

Art. 25: “Governments should address the risk factors of crime and victimization by:

(d) Using education and public awareness strategies to foster a culture of lawfulness and tolerance while respecting cultural identities.”


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In order to implement the various short-term activities that are necessary to achieve the outcomes of the community safety plan, DCAF and SHAMS have made following recommendations to the Jenin Governor’s Office:

With regards to the community safety plan:

• Toensure that there isbuy-in fromall keycommunity safety stakeholders into the Community Safety Plan

• To develop, togetherwith the communitysafety stakeholders, an implementation framework for the Community Safety Plan, which includes: timeframes, budgets and clearly defined responsibilities

• To ensure that the Community SafetyPlan and its implementation framework are endorsed by the relevant authorities at local and national level, in particular the Governorate Affairs’ Department at the Office of the President and relevant ministries

With regards to measuring the performance of the community safety stakeholders:

• To develop a tool for measuring andevaluating the performance of the stakeholders involved in implementing the Community Safety Plan

• To ensure that the performancemeasurement framework is informed by best international practice and aims to achieve the most effective and efficient implementation of the Community Safety Plan

• Toensure that there isbuy-in fromall keycommunity safety stakeholders into the

development and implementation of the performance measurement framework

• To ensure that there is commitment toperformance measurement processes among those stakeholders

• To ensure that the activities related tomeasuring performance are factored into the overall implementation framework of the Community Safety Plan. This should include review and realignment processes as they might occur and/or be required.

DCAF and SHAMS remain available to support local and national efforts to establish community safety in the Palestinian governorates in line with democratic principles and standards of the rule of law.

5. Recommendations and conclusion

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References

“Announcing the Establishment of Community Safety Committees in Jenin Governorate”, in: Maan News Agency, 22.11.2011, available:http://www.maannews.net/arb/ViewDetails.aspx?ID=447137

DCAF and SHAMS. Forum: Delivering Security to the Palestinian People. Geneva: Geneva Centre for the Democratic Control of Armed Forces (DCAF), 2009, available:http://www.dcaf.ch/Publications/Forum-Delivering-Security-to-The-Palestinian-People

DCAF and SHAMS. Developing a Community Safety Plan for Hebron. Geneva: Geneva Centre for the Democratic Control of Armed Forces (DCAF), 2012.

DCAF and SHAMS. Strengthening the rule of law in Jenin governorate: building partnerships with civil society to enhance community safety. Geneva: Geneva Centre for the Democratic Control of Armed Forces (DCAF), 2010 (in Arabic only).

DCAF and SHAMS. Community Safety and Security Sector Governance. Compilation of Reference Texts. Geneva: Geneva Centre for the Democratic Control of Armed Forces (DCAF), 2009 - 2010, available:http://www.dcaf.ch/Publications/Compilation-of-Reference-Texts-Community-Safety-and-Security-Sector-Governance

DCAF and SHAMS. Challenges to Community Safety and the Rule of Law in Palestine, Documentary (Arabic / English), Ramallah/Geneva, 2012, available: http://www.youtube.com/watch?v=RG07Uo4tSS8&feature=youtu.be

Ekblom, Paul, and Anne Wyvekens. A partnership approach to crime prevention. Brussels: Council of Europe, 2004.

Homel, Peter and Anthony Morgan. A model performance framework for community-based crime prevention. Canberra: Australian Institute of Criminology, 2011, available:http://www.aic.gov.au/documents/B/D/9/%7BBD9D5686-84DE-4914-ADFC-E9F4D6C3CE36%7Dtbp040.pdf

European Forum for Urban Safety (EFUS). Guidance on Local Safety Audits. A Compendium on International Practice. Paris, 2007, available: http://www.ffsu.org/fileadmin/efus/secutopics/EFUS_Safety_Audit_e_WEB.pdf

Palestinian Central Bureau of Statistics (PCBS). Main Findings of Violence survey in the Palestinian Society, 2011, available:http://www.pcbs.gov.ps/Portals/_PCBS/Downloads/book1864.pdf

Schacter, Mark. Not a “Tool Kit”. Practitioner’s guide to measuring the performance of public programs. Ottawa: Institute of Governance, 2002, available:http://www.schacterconsulting.com/docs/toolkit.pdf


http://www.dcaf.ch/Publications/Forum-Delivering-Security-to-The-Palestinian-People

http://www.dcaf.ch/Publications/Compilation-of-Reference-Texts-Community-Safety-and-Security-Sector-Governance

http://www.dcaf.ch/Publications/Compilation-of-Reference-Texts-Community-Safety-and-Security-Sector-Governance

http://www.aic.gov.au/documents/B/D/9/%7BBD9D5686-84DE-4914-ADFC-E9F4D6C3CE36%7Dtbp040.pdf

http://www.aic.gov.au/documents/B/D/9/%7BBD9D5686-84DE-4914-ADFC-E9F4D6C3CE36%7Dtbp040.pdf

http://www.pcbs.gov.ps/Portals/_PCBS/Downloads/book1864.pdf

http://www.schacterconsulting.com/docs/toolkit.pdf

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