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The New Orleans Police Department: Melding Police and Policy to Dramatically Reduce Crime in the City of New Orleans

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The New Orleans Police Department: Melding Police and Policy to Dramatically Reduce Crime in the City of New Orleans University of New Orleans ScholarWorks@UNO University of New Orleans Theses and Dissertations Dissertations and Theses 12-15-2007 The New Orleans Police Department: Melding Police and Policy to Dramatically Reduce Crime in the City of New Orleans Kevin A. Unter University of New Orleans Follow this and additional works at: https://scholarworks.uno.edu/td Recommended Citation Unter, Kevin A., "The New Orleans Police Department: Melding Police and Policy to Dramatically Reduce Crime in the City of New Orleans" (2007). University of New Orleans Theses and Dissertations. 599. https://scholarworks.uno.edu/td/599 This Dissertation is protected by copyright and/or related rights. It has been brought to you by ScholarWorks@UNO with permission from the rights-holder(s). You are free to use this Dissertation in any way that is permitted by the copyright and related rights legislation that applies to your use. For other uses you need to obtain permission from the rights-holder(s) directly, unless additional rights are indicated by a Creative Commons license in the record and/ or on the work itself. This Dissertation has been accepted for inclusion in University of New Orleans Theses and Dissertations by an authorized administrator of ScholarWorks@UNO. For more information, please contact [email protected]. The New Orleans Police Department: Melding Police and Policy to Dramatically Reduce Crime in the City of New Orleans A Dissertation Submitted to the Graduate Faculty of the University of New Orleans in partial fulfillment of the requirements for the degree of Doctor of Philosophy in Political Science by Kevin A. Unter B.A. Colorado State University, 1990 M.A. Colorado State University, 1992 December, 2007 Copyright 2007, Kevin A. Unter ii Acknowledgements This document has been long in completion and I would not have finished without the patience and guidance of my committee chair, Dr. David Neubauer. I thank Dr. Christine Day and Dr. Charles Hadley who continued to serve on the committee despite its longevity. That I was able to graduate is also a testament to you still residing in the New Orleans area after the twin great disasters that were Hurricane Katrina and governments’ response to it at all levels. I would like to think it was because of me that you stayed, but no doubt it is New Orleans and its magical spell. Your exhortations to finish finally sunk in, and I have. Again, thank you all. I thank John Linder and Richard Sawyer who took a chance on an unknown graduate student and thrust him into the real world of consulting to police departments and other organizations throughout this great country. It was you who taught me how to write to drive a story and how to walk and talk among the giants of policing and law enforcement, among others. I learned something new every day, in every organization, and I am a better person as a result. I will always be eminently grateful for your leadership, guidance, and most of all your friendship. To the giants of policing whom I had the tremendous opportunity and pleasure to work with in the various iterations of our consulting company: the late (great) Jack Maple, former Deputy Commissioner of the NYPD, Chief (Ret.) Louis Anemone of the NYPD, and Sergeant Special Assignment (Ret.) John Yohe of the NYPD, I simply cannot explain the education I received (and continue to receive from both Louis and John) from working side by side with you over the years. Much of what is written in these pages could not have been put down on paper without knowing you. Thank you. The next round is on me. To the other greats of policing that I met during my work: Chief Richard Pennington of the Atlanta PD, Chief Ronal Serpas of the Nashville PD, Chief William Bratton of the LAPD, Chief George Gascon of the Mesa (AZ) PD, Commissioner (Ret.) Eddie Norris of the Baltimore PD, Superintendent (Ret.) Eddie Compass of the NOPD, and Colonel William Tuffy of the Baltimore PD, I am sure all of whom at one point or another wondered aloud to themselves and others “who in the world is this guy and what is he doing my office?” Thank you for your time and acceptance and for giving me the opportunity to learn from you. I thank every officer in the New Orleans Police Department, past and present, with whom I have had the pleasure of working and meeting, for their assistance in the many endeavors during my time there. I would especially like to single out Captain (Ret.) Louis Dabdoub, Captain Daniel Lawless, Captain Ernie Demma, Captain Rose Duryea, Captain Donald Curole, and Lieutenant Bob Gostl. Your doors were always open and you always promptly returned my phone calls. Much of what was accomplished in New Orleans could not have been done without your valuable assistance. I thank every other police officer in every department with whom I had the pleasure of meeting and working. Stay safe. There is no doubt I would not have made it through this entire process without my great friends – Will and Shari, and Thomas and Merritt. I will now be able to talk about something else. I have no doubt you are happy about that. To Dad, Mom, Craig, Melissa, Jordan, Delaney, David, Megan, Alexis, Tyler, Marijane, and Heidi, I love you. Amen. iii Table of Contents List of Figures vii List of Tables viii Abstract ix Chapter 1. Introduction 1 Crime in America 2 Changes in Policing in the Face of Rising Crime 4 Crime Reduction, 1992–2005 6 Changes in Policing Leading to Crime Reductions 7 Crime in New Orleans, 1934–94 8 Changes in Policing Leading to Crime Reductions, 1994–2004 11 Why Did Violent Crime Decrease So Rapidly in New Orleans – Research Question 12 Chapter 2. A History of Crime in New Orleans and the Impetus for Change 16 Comparing Crime in New Orleans and the Nation, 1934–2004 17 The History of the NOPD and Crime in New Orleans 21 Policing New Orleans, Founding to 1960 21 Policing New Orleans, 1960–94 32 Policing New Orleans, 1994–2004 37 Impetus for Change 38 Chapter 3. The Public Policy Approach to Crime Reduction 43 Systems Theory and the Public Policy Process 43 A Definition of Crime Policy 44 Changing the NOPD and Reducing Crime in New Orleans – the Crime Policy Process 46 Agenda Setting 46 Putting Crime on the Public Agenda, Nationally and in New Orleans 47 Reducing Police Corruption: Crime Policy Formulation and Adoption, 1994–96 52 Formulating and Implementing a New Crime Reduction Policy, 1996–Present 55 Evaluating COMSTAT’s Effects 60 Public Feedback of the NOPD’s Efforts 62 Crime Declined, but was it Solely Because of the Actions of the NOPD? 63 Chapter 4. Policing and Crime Reduction – in General and in New Orleans 64 Sociological Theories of Crime Reduction 65 Political/Criminological Theories of Crime Reduction 66 The Evolution of the Police Agency into its Modern Role and Functions 67 Policing Strategies: Traditional Policing 69 iv Prevention of Crime 69 Responding to Crimes in Progress 70 Resolving Crimes Already Committed 72 Assessing Traditional Policing Strategies 73 Policing Strategies: Community Policing 74 The Need for Greater Citizen Input and Interaction 74 The Role of Citizens in Crime Reduction 75 Debate Still Surrounds the Two Approaches 76 Bridging the Gap Between the Two: Problem-Oriented Policing 79 COMSTAT – Beyond Problem-Oriented Policing 81 COMSTAT and the Policy Process 85 Summary of Policing Strategies 86 Conclusion 87 Chapter 5. Establishment of Models and Tests of Hypotheses of Crime Reduction 88 What is Responsible for the Dramatic Crime Reduction in New Orleans post-1996? 89 The Data: The Uniform Crime Reports 91 Problems Using UCR Data 92 The UCR hierarchy rule and crime classification 93 Artificially downgrading crime 94 UCRs versus other national reporting programs 95 Examining the Crime Trends in New Orleans 1985–2005 97 The Dependent Variable: Quarterly Changes in Crime in New Orleans 97 Independent Variables and Hypotheses 103 Arrests 103 Personnel Levels 108 Sociological Indicators 111 Modeling the Crime Decline in New Orleans, post-COMSTAT Implementation 118 Model One – Interrupted Time Series 119 The Abrupt and Temporary Pattern, or Impulse-Decay Function 120 The Gradual and Permanent Pattern, or Dynamic-Growth Function 122 Interpreting the Results of the Interrupted Time-Series Models 123 Model Two – Traditional Time Series Analysis and Equations 123 Data Collection Differences Across Equations 125 Findings and Discussion 126 Model One – Interrupted Time Series Analysis 126 Model Two – Traditional Time Series Analysis 130 v Policing Model, Equation 3.1 130 Individual Variables 133 Sociological Model, Equation 3.2 135 Melding Model, Equation 3.3 138 Individual Variables 140 Conclusion 142 Chapter 6. Judging Crime Policy Effectiveness 146 Measuring the Public’s Perceptions of Crime 146 New Orleans Residents’ Opinions on Crime and Fear in New Orleans 147 Public Opinion as Feedback to Policy Makers 148 Why Policy Outputs are not Enough 149 Using “Fear of Crime” as a Surrogate Measure 150 Avoiding Bias when Measuring Fear of Crime in New Orleans 150 Measuring Fear of Crime and other Residents’ Opinions In New Orleans 151 Other Measures of Policy Effectiveness 159 Conclusion 161 Chapter 7. Conclusion 163 Competing Hypotheses but Inconclusive Proof 164 Measuring the Impact of the Implementation COMSTAT 164 Measuring the Impact of Police-Specific Variables 165 Measuring the Impact of Socio-Economic Variables 166 Measuring the Combined Impact of All Variables – the Melding Model 166 Models’ Relevance for Existing Research 167 Methodological Notes for Future Research 168 No Single Explanation, but Reductions in Fear among New Orleans’ Residents 171 Crime in New Orleans and the City’s Future, post-Katrina 172 Bibliography 175 Vita 191 vi List of Figures Figure 1–1.
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