That's exactly the point. I am not including the government in my definition of safety. Rather, the focus is purely on safety from an illegal point of view (murder, rape, robbery, etc.).
This is not a very good way to look at things, because a place without any law and order would be "safe" by these standards. If rape is not illegal, women being raped is allowed. If murder is not illegal, people being stabbed or shot to death would be just the normal way of life.
