A conceptual framework of (illegal) governance behavior: A case study of Dutch outlaw motorcycle gangs

Illegal governance is predominantly studied in relation to organized crime groups, such as the Italian Mafia, establishing territorial control in the absence of strong state structures. In prior research, illegal governance often involves a combination of illegal bodies, using illegal means for illegitimate goal behavior. Yet, to talk of illegal governance, not all these three factors necessarily have to be illegal, leaving room for a more nuanced understanding of the different governance functions that (organized) crime groups can take. This study presents a conceptual governance framework in which we talk of illegal governance when either the governing body is illegal, the means by which governance is exercised are illegal, or the goal behavior is illegal. The governance framework is applied to the behavior of outlaw motorcycle gangs (OMCGs) using police files of criminal cases filed against members of Dutch OMCGs. The results show that OMCGs are involved in various types of governance behavior that, given their status as legal associations, not all constitute illegal governance. OMCGs are predominantly involved in internal governance, such as imposing rules and restrictions on members' behavior and regulating (mis)behavior of individual OMCG members. Depending on the means and goals, internal governance by OMCGs can constitute illegal government crime. To a more limited extent, Dutch OMCGs are involved in external governance of rival OMCGs or OMCG members and non-members.