Sounds from a sounding board

BOSTONIANS MAKE fewer complaints about police misconduct than their counterparts in similar-size cities. But it is unclear whether that reflects residents' satisfaction with the police or low expectations that their complaints will be heard. It is a fruitful area of inquiry for the city's newly established civilian review board.

Boston residents made just 114 complaints of police misconduct in 2007, and 60 during the first eight months of 2008. Complaint rates run five or more times higher in Portland, Ore., Denver, and other cities where independent review boards field complaints about police. In Boston, residents file their initial complaints with the Police Department's Internal Affairs Division.

Some Bostonians may be too intimidated to complain. But the three-member oversight panel isn't reticent. It analyzed 19 cases provided by Internal Affairs in its first annual report, and returned five for reinvestigation due to lack of rigor or fairness. The independent panel is also eager to track more cases. Mayor Menino might even want to consider extending the panel's oversight to the campus and special housing police forces licensed by the Boston police.

The dearth of complaints could be a positive sign if it reflects a belief by officers that the department won't cover up misconduct. Nationwide, internal affairs investigators sustain about 10 percent of misconduct allegations against police officers. Boston police are tougher on their own, with rates running 13 to 18 percent in recent years.

But the low citizen complaint rate is more likely a reflection of the department's weak efforts to publicize the complaint process. Both a 2005 Northeastern University study and the review board's annual report found that residents are generally unaware of how to lodge a complaint against police. The panel is wisely recommending that complaint forms be made available in languages other than English, and in places other than police stations. District courts and city offices would make sense.

One finding is especially troublesome. Even those residents who allege rude treatment, excessive force, and other police misconduct are not making use of an appeals process if the charges against officers are dismissed. In the past year, residents appealed in only four cases. Researchers at Harvard Kennedy School of Government are conducting a survey to determine why so few appeal. The study, due in November, may also throw light on why so few people make initial complaints of misconduct.

The oversight panel is still feeling its way. But it is tougher already for police who abuse their authority to get a pass in Boston.