Improving Police-Community Relations
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Table of Contents 1. Statements of Purpose a. Eric L. Adams, Borough President of Brooklyn……………………………….3 b. Gale A. Brewer, Borough President of Manhattan…………………………….4 c. Norman Siegel, Civil Rights Attorney…………………………………………6 2. Executive Summary……………………………………………………………….9 3. Acknowledgments………………………………………………………………..13 4. Introduction………………………………………………………………………16 5. A Brief History of Community Policing…………………………………………19 6. A Timeline of Crisis……………………………………………………………...35 7. The Town Halls…………………………………………………………………..48 8. Last Reflections………………………………………………………………….79 9. Recommendations and Next Steps……………………………………………….86 10. Conclusion……………………………………………………………………….94 11. Endnotes……………………………………………………………..…………..97 12. Bibliography……………………………………………………………………108 13. Appendix……………………………………………………………………….135 1. Statements of Purpose Honorable Eric L. Adams, Borough President of Brooklyn For 22 years, I stood on street corners in a blue uniform and bulletproof vest, protecting children and families as a member of the New York City Police Department. For the last eight years, I have stood on those same street corners in a blue suit or blue jeans, connecting with Brooklynites as their elected representative on the issues that impact their daily lives. After 30 years of standing on street corners in public service, I’ve seen firsthand the wide gulf that exists between the police and the community they serve to protect. Failed policing strategies, such as the surveillance of Muslim New Yorkers and the abuse of stop, question, and frisk, both of which I have fought against in our courts and communities, have fostered mistrust on multiple levels. Alongside declining neighborhood conditions, this mistrust has become twisted and tangled in a complex web of real and unanswered concerns. It is long past due for us to untangle this web and reconnect. As a victim of police brutality during my teenage years, and later as a man who decided to work from the inside of One Police Plaza to achieve reform, I know on a personal level what is at stake if we cannot restore the symbiotic relationship between the community and police: the safety and security of New Yorkers lie in the balance. We need to get this relationship right, police officers and residents alike. This is more than a local narrative. In the past year, the eyes and ears of the nation were focused on the deterioration of police-community relations and the tragic consequences of this very real problem. The massive mobilization of people from all walks of life to speak out against abusive policing calls attention to the larger imperative of addressing toxic pain that is rooted in generations of racial and socioeconomic inequity. The town halls and digital dialogues we hosted in Brooklyn with hundreds of New Yorkers were more than an opportunity for emotional release; they were a crucial exercise in understanding where community- police relations are and where they need to go. Public safety is the foundation upon which our city is built. It makes it possible for us to be an international center of commerce, culture, and creativity, home to millions of people from near and far pursuing dreams big and small. It is my hope that this report, and all of the efforts and energies that went 3 into it, help to strengthen our foundation with a greater understanding of the challenges that lie ahead of us. Moreover, I look forward to a thoughtful consideration of the recommendations this process has borne as opportunities to make New York City a more safe, just, and equitable place to raise healthy children and families. Honorable Gale A. Brewer, Borough President of Manhattan Over the past year, as we have seen the New York Police Department grapple with improving police- community relations, I have heard from hundreds of my constituents calling for increased transparency and accountability in the department. I believe we have a duty to set a positive and constructive tone for improving community-police trust. I care deeply about repairing this strained relationship and look forward to working in partnership with New Yorkers, the department, the Mayor, and the City Council to accomplish this. Since December 2014 my office has worked tirelessly with constituents, police officers, civic organizations, nonprofits, and youth groups to continue to address these challenges. I am proud to have sponsored a series of police-community dialogues in Manhattan, each attended by over 150 residents and police officers. We sat participants at small roundtables where they could look at each other face to face and have frank conversations. Participants were first asked to describe the current relationship between the community and police and then to envision the ideal relationship. The themes resounding echoed at these forums were the need to (1) promote open, honest communication to ensure mutual respect and trust; (2) cultivate robust and ongoing relationships with community stakeholders as authentic partners; (3) offer more professional development opportunities and enhanced de-escalation trainings for officers and (4) create transparent mechanisms and measurements for officers to hold each other accountable for misconduct and abuse. It was clear, though, that in order to achieve these goals, we need systemic reform that shifts the culture of the NYPD and the way policing is conducted in New York City. I commend the Department for introducing its own initiatives in restoring community trust, including piloting body cameras in a few precincts and rolling out a neighborhood policing model. At our dialogues, we also asked community members to define what the success of these initiatives will look like for their communities. I deeply believe that our communities are and need to be an integral part of 4 any proposed solution for improving police-community relations. Residents’ voices must be amplified in all conversations held at the agency and policy levels. The recommendations of the hundreds of community members we spoke with at our Manhattan dialogues are directly reflected in my office’s recommendations for systemic reform in the NYPD. In order to develop a comprehensive understanding of the current state of police-community relations across Manhattan, we sought to accomplish the following: Engage a range of neighborhoods: We held three police-community dialogues over five months in geographically distinct neighborhoods throughout the borough: Washington Heights, East Harlem, and the Lower East Side. According to 2014 Civilian Complaint Review Board (CCRB) data, of the 22 precincts in Manhattan, Precincts 25 and 23 (East Harlem) and Precincts 33 and 34 (Washington Heights) had comparatively high numbers of CCRB complaints, while Precincts 5, 7, and 9 (Lower East Side) had relatively lower numbers. Concentrating on these three neighborhoods helped us widen the lens to capture the reality of police-community relations and ideas for reform. Representative community engagement: To ensure widespread and representative community engagement, we identified community centers in each neighborhood to host our dialogues. This ensured a neutral space, where community members would feel comfortable voicing their concerns. We worked directly with community-based organizations, faith leaders, Community Boards, youth-serving organizations, and tenant leaders to help organize and advertise our dialogues. We recognized that no dialogue on police-community engagement can be complete without the involvement of the police officers who serve each community; thus, we worked directly with precincts to ensure that patrol officers, commanding officers, and borough commanding officers were present and ready to engage in meaningful conversation. Over 150 community members and police officers participated in each of our dialogues. One concern our conversations with community members over the past year have made abundantly clear is the lasting impact of abusive policing on New Yorkers. There are intense, deep-seated feelings of fear and mistrust—and some serious harm for New Yorkers who have been criminalized by unjust policing policies—that we as a city must address. Yet it is also clear that community members are looking for a way forward and want to be a part of the solution in improving police-community trust. We know we cannot change the past, but we can collectively bend the arc of history toward justice in the future. A 5 justice based on policies and practices that protect and help victims without creating new victims in the process. I look forward to working with the Mayor, the Commissioner, the City Council, and, most importantly, you, the public, in achieving these goals and working toward a safer, more just city. Norman Siegel, Civil Rights Attorney, Siegel Teitelbaum and Evans LLP The deaths of Eric Garner in Staten Island and Michael Brown in Ferguson, Missouri in the summer of 2014 and the resulting non-indictments of the police officers involved in their deaths brought on a national outcry and a round of intensifying mass protests throughout the autumn. The growing outcry in the streets and in the national and local media, and the strong, often conflicted feelings they had brought out on the questions of race and justice, caused me to realize that we were once more in that historic moment when our nation’s racial history emerges from the shadows to confront our perceptions and our conscience. In the hope of using that moment to learn all we could about the state of policing and race relations in our city, I reached out to Eric L. Adams, the Borough President of Brooklyn and Gale A. Brewer, Borough President of Manhattan in the hope that they would join me in setting up a public dialogue. I knew from years of working closely with them that we shared a commitment to civil rights, justice, and the best interests of the city’s people. Our subject would be the state of the city’s police-community relations, and I proposed a process where every day New Yorkers and rank and file police officers could come together across racial, religious, gender, and economic lines. As I saw it then, we and the city needed to find out how people felt about the turmoil between the police and community, and what ought to be done about it.