Horizons of context: understanding the police decision to arrest people with mental illness.

The criminalization hypothesis assumes that deinstitutionalization coupled with inadequate police training has led to the increased arrest of people with mental illness. Arrest is viewed as a means to manage the troublesome behavior that often results from mental illness. Supporting research has emphasized the contributing role that illness plays in the arrest decision. This assumption largely ignores an extant criminal justice literature on the factors that influence arrest. On the basis of a review of this criminal justice literature, beginning with Bittner's 1967 seminal work, a framework is proposed that incorporates three contexts -- manipulative, temporal, and scenic -- surrounding the police encounter and the relationship of these contexts to mental illness. These three "horizons" incorporate the characteristics of the community, the offender, and the incident, all of which are recognized as influential in shaping police discretion. The scenic horizon is indicative of the features of the community. The temporal horizon includes police knowledge that stretches beyond the specific incident and officer characteristics. The manipulative horizon involves the current incident from the standpoint of the officer and includes considerations of safety for the community as well as the immediate concerns of the officer. Implications of this framework are then explored with respect to both police and mental health service mandates.