Public Safety A Bulletin of Applied Geography for the Study of Crime & Public Safety Volume 3 Issue 2 | August 2012

Criminal Justice and Public Health Approaches to Contents Violent Crime: Complementary Perspectives 1 Criminal Justice and Public Health Approaches to Violent Crime: John Markovic Complementary Perspectives Senior Social Science Analyst U.S. Department of Justice, Offi ce of Community Oriented Policing Services 3 Integrating Emergency eography & Public Safety readers, particularly those with crime analysis and mapping Department and Police Data to backgrounds, probably appreciate the close parallels and overlapping analytic techniques Locate and Prevent Violence: The Gshared by criminal justice and public health approaches to social problems such as Cardiff Model violence. Criminologists have long borrowed from public health. Many readers have seen the map, originally published in 1854, of cholera incidents relative to London’s Broad Street 5 Using Public Health Strategies to water pump. Indeed, even after more than 150 years, this map is still being referenced by Reduce Violence in “Hot Spots” in criminologists and crime analysts as an early exemplar of spatial visualization and problem East Palo Alto, California solving.1 Treating violence as if it were a contagious disease is implicit in many intervention and prevention programs aimed at disrupting its spread, including the “pulling levers” and “focused 9 Comprehensive Community Based deterrence” approaches that characterize the original Boston CeaseFire program and its more Information System to Reduce recent replications. Th is is also true of Chicago’s own CeaseFire strategy. Although Chicago’s Youth and Gang Violence in Los approach is distinct from the Boston strategy (and certainly not a replication), the Chicago Angeles County and Beyond CeaseFire expressly identifi es itself as a public health approach focused on street savvy outreach workers acting as interrupters to halt the spread of retaliatory violence. 11 What Can We Learn from Public Th eoretical, conceptual, and analytic parallels between the two perspectives are extensive. Health? – An Example of Sharing As envisioned by the Centers for Disease Control (CDC) and others, the four-step Law Enforcement Spatial Data process outlined in the public health model (see Figure 1 below), often characterized as a with Community Partners problem-solving strategy, is very much in line with the four-step SARA problem-solving approach (scanning, 16 News Briefs Figure 1. 4-Step Public Health Process analysis, response, and assessment) that is 18 Recent Events familiar to the criminal justice community and adherents of community policing. Likewise, the public health triangle (see Figure 2 on page 2) and the crime triangle (see Figure 3 on page 2), at the core of routine activities approaches, convey a similar message; essentially, that an actor and a target must Source: Centers for Disease Control and Prevention’s Injury converge in a conducive Center. www.cdc.gov/ViolencePrevention/overview/ environment (i.e., one publichealthapproach.html without the adequate G&PS | August 2012

Figure 2. Public Health Environment protective factors/guardianship/resiliency) as preconditions for Triangle an event (crime/disease) to occur. Whether speaking of disease or crime, disrupting any one of the elements of the triangle represents Why was the Who was exposed? an opportunity for prevention. agent present? When? How? What made it dangerous? As one unpacks the theoretical vantage points, empirical fi ndings, and practical work stemming from both the public health and contemporary criminal justice perspectives, the synergies and parallels become more apparent. Most illnesses (as well as indicators of health) are not randomly distributed geographically or demographically. Certainly, we know the same is true about many types of crimes (or pro-social behaviors). We also have ample Agent Host evidence that health risks and crime risks often co-exist, both at the Who got sick? individual level and spatially. As geographic evidence, maps have How sick did they get? been proff ered that illustrate the spatial correlation between crime Source: Centers for Disease Control website. and disease. Maps showing concentrations of aggravated assault http://blogs.cdc.gov/genomics/2011/09/22/ look strikingly similar to maps showing concentrations of health genomics-in-public-health-preparedness­ problems such as asthma, drug addiction, or sexually transmitted chance-favors-the-prepared-mind/ diseases (STD). Maps showing concentrations of health risks such as lead exposure or the proportion of mothers experiencing low birth weight deliveries look quite similar to maps depicting risks of being an assault victim. Co-morbidity is the term that would be used by public health practitioners to describe this spatial convergence of adverse indicators. As a collaboration eff ort of the Offi ce of Community Oriented Policing Services (COPS Offi ce) and the National Institute of Justice (NIJ), this publication has always embraced the principles of cross-disciplinary approaches and cross-fertilization. Public safety is a category broader than just crime. Crime analysts and criminologists have gained insights from the public health perspective and have often borrowed from its analytic toolbox. Th is issue features articles that illustrate how public health and criminological perspectives can be combined to develop eff ective and synergistic strategies to address violence. Featured are four approaches to violence intervention and prevention that are informed by a cross-disciplinary input and assessments, that are evidence- based, and that are capable of being evaluated, replicated, and adapted. Th e fi rst article on the Cardiff Model perhaps speaks most directly these synergistic eff ects by illustrating how data about stabbings from two independent data sources—trauma admissions at hospital emergency departments and crime data on assaults from police—have been used strategically to reduce stabbing incidents in that city. As may be no surprise to readers that rely on administrative data themselves, neither the hospital data nor crime data by themselves are perfect, nor are either indicative of the universe of violent incidents. When the two sources of data are Figure 3. Crime Triangle integrated, however, they lead to a more complete understanding of the distribution and concentration of stabbings, thereby providing a broader basis for a more encompassing and eff ective problem- solving response. Th e article describing an innovative program in East Palo Alto, California, is perhaps the most hopeful and ambitious in its goals. Beyond a traditional enforcement and surveillance response to hot spots, the East Palo Alto initiative aspires to turn hot spots for gun shots fi red into fi tness zones. Gunshot detection technology and health data are being used to defi ne high risk areas in which geographically targeted fi tness programs designed to simultaneously improve the health of residents and offi cers will be instituted. In terms of the crime triangle, the initiate’s Source: Center for Problem-Oriented Policing. design is meant to increase guardianship and reduce opportunities www.popcenter.org/about/?p=triangle of crime. Th e next article on the Los Angeles County Sheriff ’s Department’s (LASD) Community Based Information System

2 (CBIS) illustrates the value of a multi-user multidisciplinary case review process prevention are not incompatible with legal interactive mapping system that addresses for the prevention and legal resolution processes that seek to hold perpetrators of gang violence and its context. CBIS is of homicides and non-fatal shootings serious violent crime accountable for their deliberately designed around the concept in that city. Th e HMRC approach behaviors. ■ of the ecology of neighborhood violence, underscores the compatibility of a public recognizing the interdependence between health perspective and the problem- Notes violent crime with public health, child solving approach commonly associated 1 See for instance, Weisburd, David and Tom development, job market conditions, and as a tenet of community policing. Th is McEwen. 1998.“Introduction.” In Crime Mapping community development initiatives. highly adaptable approach is now being and Crime Prevention, ed. David Weisburd and Tom McEwen, Monsey, New York: Criminal implemented in other urban jurisdictions. Th e final article is about Milwaukee’s Justice Press. 1–23 Th e HMRC article also illustrates that Homicide Review Commission (HMRC), problem-solving approaches to violence which illustrates the value of a data-driven

Integrating Emergency Department and Police Data to Locate and Prevent Violence: The Cardiff Model

Iain Brennan University of Hull Jonathan Shepherd, Director Violence Research Group and Professor of Oral and Maxillofacial Surgery, Cardiff University

here is convincing evidence that Th ere is growing international evidence In July 1997, a prototype statutory targeted policing can be eff ective that collaboration between public health partnership—a multi-agency violence Tin reducing crime and disorder.1 and the police can enhance violence preven­ prevention group, made up of However, the locations of concentrations tion eff orts. For example, in South Africa, representatives of the city government, of violence (‘hot spots’) change, sometimes a collaboration between public health ori­ police, city licensing regulators, and an very rapidly—such as in urban night-time entated research groups led to the establish­ ED consultant, and chaired by a professor economies where the number and locations ment of a nationwide violence and injury of oral and maxillofacial surgery—was of premises licensed to sell alcohol vary surveillance system, which has been used to convened to implement such an approach over time—which implies that continuous inform police–crime information systems.3 in Cardiff , Wales (2010 population, access to and use of reliable data are In the U.K., the Crime and Disorder Act 327,000). In time, membership expanded important. Evidence indicates that much (1998) placed a legal obligation on police, to include representatives of education, violence is not reported to the police. In local government, and the health services to transport and ambulance services, and local a comparison of violence aff ecting adults collaborate to develop and implement joint bar and nightclub licensees. After careful (aged over 16) in 1999 in eight western crime reduction strategies. refinement—particularly of arrangements countries, rates of reporting violence to the to assure anonymity, and share, summarize, police varied from 24% in the Netherlands Evaluating a multi-agency and use data derived from the ED—the to 52% in the United States. Th e rates at mature CVPP became operational in which these events were offi cially recorded violence prevention partnership— January 2003. varied from 20% in Switzerland to 82% in the Cardiff Violence Prevention In summary, for all patients reporting the United States.2 Programme (CVPP) injury from violence, information about In a program initiated in the United King­ Th e aim of this study was to test whether the precise violence location (name of bar, dom and subsequently adopted in Scandi­ a partnership between health and police nightclub, school, park, street, etc.), and navia, Emergency Department (ED) and practitioners and city government officials time, day, and weapon type that is captured police data matching studies have demon­ using data collected in EDs as well as electronically in the ED by reception staff strated that only a quarter to one-third of police intelligence to inform targeted when patients first attend, is stripped of violence that results in ED treatment ap­ policing and other strategies, would personal identifiers and shared by hospital pears in police records. Th erefore, the ED prevent violence to a greater extent than IT personnel on a monthly basis with the represents a valuable source of information city partnerships in which ED data are not statutory partnership crime analyst. Th is for violence prevention. collected and used. analyst then combines data with police

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intelligence to generate maps of violence ‘hotspots’ and licensed premises, and more frequent late-night summaries of weapon use and violence type (classifi ed public transport services. Th e unique characteristics as ”stranger,” ”acquaintance,” and “domestic” to fi t with of the partnership, which were not present in any national crime survey categorization). Integrated other U.K. city partnership during the period of the violence prevention is then based on this combined, evaluation, were the systematic collection, summary, continuously updated information.5 and use of ED data for violence prevention and the participation of ED and maxillofacial clinicians in Th is prototype statutory partnership meets statutory partnership meetings. Th e common attitudes approximately every 6 weeks and, based on the of trauma specialists and police managers—both combined data, has introduced and sustained a responsive, action orientated practitioners—was range of strategies designed to address specifi c risks evident in the mature statutory partnership. and patterns observed in the data. Th ese strategies comprise repeated adjustments to the routes of To test the eff ectiveness of this program on rates of police patrols and moving police resources from police-recorded violence, Cardiff was compared to its suburbs to the city center on weekends to ensure 14 “most similar” cities—identifi ed by the U.K. Home that police are present and able to intervene at Offi ce (the lead government department for police) specifi c locations and times identifi ed by the data, over 84 months. Furthermore, in order to triangulate targeting problematic licensed premises (by police the analysis, violence-related ED attendance rates in and city government offi cials responsible for alcohol Cardiff were also compared to those in three “most licensing), and informing public space Closed Circuit similar” cities over 72 months. Television (CCTV) deployment. Over the course of Information sharing and use was associated with a the experimental period, the statutory partnership substantial and statistically signifi cant reduction in (which became the statutory U.K. approach to violence-related hospital admissions, from 6.7 to crime prevention following the Crime and Disorder 5.4 per month per 100,000 population in Cardiff Act) initiated and coordinated violence prevention compared to an increase from 5.3 to 8.4 per month in initiatives. Prevention strategies unrelated to comparison cities; and substantially fewer woundings targeted policing were also implemented by the city recorded by the police, from 53.8 to 82 per month government, prompted by the combined data and per 100,000 population in Cardiff compared to an other factors such as the need to improve traffi c fl ow increase from 53.9 to 113.8 per month in comparison and public transport arrangements. Th ese included cities (see Figure 1). However, there was a statistically pedestrianizing sections of a city center street signifi cant increase in violence resulting in no injury where bars and nightclubs are mainly concentrated, or very minor injury recorded by the police in Cardiff mandatory use of plastic glassware in selected relative to comparison cities.

Figure 1. Total assault rates by month, Cardiff and Conclusions and policy implications mean of comparison cities It was concluded that the Cardiff Violence Prevention Programme (now widely known as, “Th e Cardiff Model”) is associated with a substantial and sustained reduction in violence-related injury, whether recorded by health services or by the police. Th is eff ect was observed only for violence causing wounding and not for more minor violence; the intervention was associated with an estimated 42% fewer woundings recorded by the police 4 years after implementation. While other evaluations of violence prevention strategies frequently focus on changes in behavior (e.g., student reports of fi ghting) or impacts within a Source: Florence et al. 2011. Eff ectiveness of anonymised narrow target population, the outcomes reported here information sharing and use in health service, police, and refl ect community-level changes in violent injury. local government partnership for preventing violence Th is violence prevention model was adopted by related injury: experimental study and time series analysis. the U.K. government and is being implemented British Medical Journal 342: d3313. across the country. It is advocated by the World

4 Health Organization and replication is and national crime surveys have been Th is summary is based on: 2 underway in Holland and South Africa as carried out, and police ascertainment Florence, C., J. Shepherd, I. Brennan, 3 well as the United States (in Milwaukee). is even lower in low and middle income and T. Simon. 2011. Eff ectiveness of As a public health strategy the model is countries, it is likely that the principal anonymised information sharing and intended to be dynamic, interdisciplinary, conclusion of this study may well be use in health service, police, and local and comprehensive (i.e., not dealing only generalizable globally. government partnership for preventing with particular violence categories such Replication studies and wider violence related injury: experimental study as gang violence). Communities can use implementation in the United States and time series analysis. British Medical this partnership approach to identify ■ pose particular challenges, which Journal 342: d3313. gaps in local prevention strategies and include fragmentation of emergency to introduce appropriate programs Access the full report at: www.bmj.com/ services compared to the U.K. where and policies based on the best available content/342/bmj.d3313 cities the size of Cardiff are often evidence. For example, interventions served by just one ED. Th is means that to improve the social cognitive skills of Notes the diff erent ED catchment areas in a youth and family-based programs to 1. Farrington D., P.A. Langan, and M. Tonry. 2004. U.S. city would need to be taken into enhance parental monitoring of youth, as Cross-National Studies in Crime and Justice. account and information relevant to Washington D.C.: U.S. Department of Justice, well as community level programs such targeting of violence locations dealt with Bureau of Justice Statistics. as Ceasefire’s eff orts to diff use escalating cumulatively. However, there may also 2. World Health Organization. 2004. Preventing community violence and the Boys and Violence: A Guide to Implementing the be advantages in terms, for example, of Girls clubs’ work to provide stable adult Recommendations of the World Report on Violence the ease with which ED software can be and Health. Geneva: World Health Organization. mentors, could be introduced on this basis. adjusted to capture the key information 3. Braga A.A. 2007. The effects of Hot Spots Policing Th ese findings suggest that communities fields compared to the challenges of on Crime. Campbell Systematic Reviews. 1–36. can achieve substantial reductions in the adjusting comparatively monolithic 4. Warburton A.L., and J.P. Shepherd. 2006. Tackling alcohol related violence in city centres: effect of public health burden of violence through national systems in the U.K. But the emergency medicine and police intervention. organized data-driven partnerships most important potential benefit in a Emergency Medicine Journal 23:12–17. between health, law enforcement agencies, U.S. context is the prevention of fatal 5. Goodwin V., and J.P. Shepherd. 2000. The and local government. Furthermore, since and very serious violence, which is much development of an assault patient questionnaire to allow accident and emergency departments to police ascertainment of violence that more prevalent in the United States than contribute to Crime and Disorder Act local crime results in injury is limited in all western it is in the U.K. audits. Emergency Medicine Journal 17:196–98. countries where data matching studies

Using Public Health Strategies to Reduce Violence in “Hot Spots” in East Palo Alto, California

Sarah Lawrence Chief Ronald Davis Brad Jacobson Chief Justice Earl Warren Institute on Law and Social Policy East Palo Alto Police Department San Mateo County Health System University of California, Berkeley School of Law

Introduction health community to jointly address targeted neighborhoods while improving vidence of the relationship between the global and vitally important issues the health of those communities through geography and public health of public health and public safety is partnerships with local health experts and Econtinues to grow. Urban areas of limited. Th e East Palo Alto (EPA) Police service providers. Department is working in partnership with concentrated, chronic disease and high Th e City of East Palo Alto in San Mateo the San Mateo County Health System, the mortality rates are often the same areas County, California, is a small, diverse Offi ce of Community Oriented Policing where residents live in environments community of approximately 30,000 Services (COPS Offi ce), Th e Center for with extremely high levels of crime residents with a serious violence problem. Court Innovation, and Th e California and violence. Despite this evidence, the In 2010, EPA’s violent crime rate was Endowment to explore new and creative number of partnerships between the law nearly 80% higher than the state of enforcement community and the public strategies to reduce crime and violence in

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California overall, at 790 per 100,000 compared to the Building on the well-established research on crime state average of 441 per 100,000.1 Th e City of East “hot spots,” GLDS can be viewed as a logical direction Palo Alto also has serious public health challenges. in which a technological application further advances Preliminary analysis suggests that health disparities law enforcement’s utilization of place-based, anti­ between the residents of the City of East Palo Alto crime strategies. Th ere are many potential benefi ts of and the rest of San Mateo County exist along a this relatively new technology, including reductions in variety of metrics. For example, rates of bacterial violent crime and shootings, shorter response times, sexually transmitted diseases are twice as high in increased clearance rates, and improved investigative East Palo Alto compared to the rest of the County.2 capabilities, among others. Th ese health challenges do not apply to adults only, Th e number of shooting incidents detected by the but children as well. An example of this is that a acoustic sensors is signifi cantly higher than the signifi cantly lower percent of 5th graders in EPA pass number of calls for service for gunshots. Th e East Palo all of the Physical Fitness Standards compared to the Alto Police Department averaged 500 dispatched calls County average. for service involving a firearm before the system was Th e intersection of these significant community activated and the system records approximately 1,500 challenges is the genesis behind a project being led activations per year.3 by the EPA PD and supported by Th e California To date, the ShotSpotter technology has primarily Endowment, which is employing GIS technology been used as a rapid response tool in the cities that and community-based strategies to identify have purchased and deployed the technology. As and address health and violence problems. Th e described below, the East Palo Alto project is using initiative is being used as an opportunity to employ the technology as part of a place-based strategy and as a place-based technology, which was designed as a key tool for problem solving and crime prevention a law enforcement rapid response tool, in health eff orts above and beyond rapid response eff orts. promotion and crime prevention.

Gunshot Location and Detection System Project Overview Th e project is using a combination of community Police departments across the country are trying to do partnerships, technology, spatial analysis, and more with fewer resources and are spending millions problem-solving strategies to address some of the of dollars—much of it federal funding—to purchase violence and health challenges facing the City. various technologies that hold the promise of enhancing job quality and improving effi ciency. Over the last Identify Shooting Hot Spots. Th e police department, decade, an increasing number of police departments San Mateo County Health System, and academic have introduced gunshot location and detection systems partners from the Warren Institute on Law and Social (GLDS) to identify and convey the location of a Policy at the Berkeley Law School have mapped nearly gunshot through acoustic sensors, which are installed 3 years of shooting data from ShotSpotter system at approximately 20 sensors per square mile. When a activations for the purpose of identifying shooting gunshot or another loud sound occurs within a coverage “hot spots.” Figure 1 on page 7 maps over 5,200 area, the system detects, locates, identifi es, and classifi es shooting incidents as detected by the ShotSpotter the sound in just a few seconds. Information collected system between January 2009, when the system was by the GLDS provides the police department with a first launched citywide, and October 2011. East more comprehensive understanding of the volume and Palo Alto is approximately 2.5 square miles and this nature of shootings and includes an audio recording of map suggests that there are few places within the the event, the type of event (e.g., gunshot, firecracker, City’s borders where shootings do not occur. Using or another loud sound), the caliber of the weapon, ESRI ArcView, the ShotSpotter data were used to the number of rounds fired, the precise location statistically identify the census blocks that comprise of the incident, and the time and duration of the the two “hottest” gunshot hot spots, which will then incident. Th is information is immediately transmitted help guide the deployment of police department and to dispatchers, well before any 911 calls for service are health resources for this project.4 Preliminary results received. Th e City of East Palo Alto deployed such a indicate that the two hot spots are located in police system,“ShotSpotter,” citywide at the beginning of 2009 beats 2 and 3 (see Figure 2 on page 7). and is the fi rst jurisdiction in the United States to have total area coverage by this GLDS.

6 Figure 1. Shooting Incidents from ShotSpotter in East Palo Alto, January 2009 to October 2011 Incorporate Public Health Data. In addition to shooting data, health-related metrics will be collected, analyzed, and mapped with a focus on comparisons between the crime hot spots, FIT zones (see below), City, and County overall. Potential metrics include chronic disease-related deaths, heart disease, child physical fi tness levels, obesity rates, mortality rates, sexually transmitted diseases, and hospitalizations. Establish and Strengthen Partnerships. Engaging a diverse set of local partners is a cornerstone of this initiative. Th e City of East Palo Alto has a history of community partnerships and cross-agency collaboration. Th is initiative is building on some existing relationships but also providing an opportunity for collaboration among groups that have not done so in the past. In addition to law enforcement and county public health experts, other project partners will include residents, local health services providers, community advocates, schools, behavioral health, and city planning. To oversee the overall direction of the project and monitor progress, a multi-disciplinary Advisory Source: Google Earth mapping of ShotSpotter activation data. Committee is being established that will include Figure 2. Gunshot Hot Spots in East Palo Alto Police Beats 2 and 3 representatives from these and other groups. Identify Fitness Improvement Training (FIT) Zones. Based on a combined assessment of shooting hot spots and neighborhood-based needs and resources, Fitness Improvement Training (FIT) Zones within the designated hot spots will be identified and these smaller geographic areas will be the targets of the intervention. Both law enforcement activities and health-related activities will be defined and the specifi c activities will be determined as the project progresses. Law Enforcement Activities in the FIT Zones. Th e police department believes that as residents increase outdoor activities on the streets and in the parks, they will improve their health and regain control and ownership of their neighborhoods. Th e intent is that the offi cers’ presence and participation will allow neighbors to exercise with a stronger sense of security and become acquainted with these police offi cers. A variety of police department activities in the FIT Zones will be implemented as the project progresses. One area of focus will be activities in which police offi cers help facilitate increased outdoor activity of the residents who live within the identifi ed areas. For example, police offi cers will be assigned to the FIT Zones and participate in physical activities such as walking, jogging, and bike riding with the residents. Th e police department will assess options for temporary street closures with police offi cer presence Source: ShotSpotter activation data from East Palo Alto Police that will provide more outdoor safe space for healthy Department and San Mateo County GIS.

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activity. In addition, police will work with local health experiences with violence and changes in fear of service providers to identify ways in which the police violence, levels of physical activity, and perceptions can be involved in facilitating increased access to of police; and interviews and focus groups with local health services and health and fi tness education. stakeholders including residents, community leaders, and health service providers. Health-Related Activities in the FIT Zones. Specifi c health-related activities in the FIT Zones will also be further developed and refi ned as the project progresses. Outcomes Th ere will be increased coordination of health services Th e primary, desired outcome of this initiative is two­ in the targeted geographic areas. Th e local services fold: to improve public safety in areas experiencing provider based in East Palo Alto will be a key partner high levels of crime and violence and to improve the in designing and delivering public health interventions health of residents living in those areas. Th rough the in the identifi ed sites. Health Service Delivery Teams eff orts of this initiative and the partnerships upon will be deployed in the designated FIT Zones to which it is built, there is hope for additional, positive provide services to residents that typically have limited outcomes. Improvements in police and community access to such services. Health Educators and Health relations and increases in police legitimacy in the eyes Navigators, who are local residents and community of the residents in the targeted areas are anticipated. advocates working in the community, will work to Th e hope is that the work being done under this connect residents with health services and increase nascent initiative can be leveraged into a larger eff ort awareness and education related to health and fi tness. that will have longer-term, positive outcomes such Integrate Into Overall Crime Reduction Strategies. as physical improvements to the built environment, Activities from this project are well matched with sustained reductions in crime and violence, sustained hot spot policing, problem-oriented policing, and improvements in healthy behavior, and changes in community policing strategies and will be deployed “community norms” around health and healthy in the targeted areas as part of the City’s overall behavior. Ultimately, the hope is that this GIS-based crime reduction strategy. Public health strategies may technology can be used as a crime prevention and also be incorporated into off ender-based strategies. problem-solving tool and can assist with longer-term, For example, as part of East Palo Alto’s Operation environmental and social changes that will make East Ceasefire “call-ins” and home visits within the FIT Palo Alto a healthier and safer community in which to Zones, the police may connect individuals with live and work. ■ appropriate medical and dental services. Public health metrics may be incorporated into CompStat and other Notes data-driven crime reduction eff orts. 1. FBI Uniform Crime Report Program, Crime in the United States, 2010. www.fbi.gov/about-us/cjis/ucr/crime-in-the-u.s/2010/ Monitoring and Evaluation. With a research partner crime-in-the-u.s.-2010 as part of the core project team, a key component of 2. San Mateo County Communicable Disease Reports. www. this initiative is on-going monitoring and evaluation smhealth.org/sites/default/files/docs/PHS/STD_2010_ activities that will include an analysis of changes in Annual_Report.pdf 3. San Mateo County Public Safety Communications Division and crime and shootings in the identified hot spots before, East Palo Alto Police Department. during, and after the project is implemented; a survey 4. Geospatial statistics used: standard distance area and the Getis- of residents in the targeted hot spots to assess their Ord Gi*.

8 Comprehensive Community Based Information System to Reduce Youth and Gang Violence in Los Angeles County and Beyond

Lieutenant Cheryl Newman-Tarwater CBIS Manager, Los Angeles County Sheriff’s Department

Detective Ray Bercini Los Angeles County Sheriff’s Department

he Los Angeles County Sheriff ’s Speaking to the value of CBIS to the CBIS has been used to address a wide Department (LASD) initiated the Sheriff ’s Department, Sheriff Lee Baca range of gang- and youth-violence related TCommunity Based Information asserted,“We can provide the community solutions, ranging from prevention, inter­ System (CBIS), an extensive and expanding with tangible solutions to their problems vention, enforcement, and problem solving. information management system with map­ and create a cultural shift within law Its utility extends beyond the issue of ad­ ping capabilities, in July 2009. CBIS was enforcement.”3 dressing gang crime. Its purposes as origi­ conceived in response to A Call to Action: nally envisioned are specifi ed as follows: A Case for a Comprehensive Solution to LA’s CBIS Overview . Enhance understanding of the Gang Violence Epidemic, a 2007 report that community, its resources, and crime squarely identifi ed a “long-term epidemic of CBIS is a web-based, password protected trends through GIS mapping youth gang homicide and violence,” noting portal that is accessible only to law that nearly 75% of youth gang homicides enforcement and data-sharing partners . Strengthen prevention and in the state of California had occurred in within the justice community. In contrast intervention service referral through Los Angeles County.1 Cast in the context to reactive law enforcement technological easy law enforcement access to of an epidemic, this problem called for a systems that primarily are used to track local business and service provider comprehensive response that went beyond criminals or analyze crime, the purpose of resources traditional enforcement approaches by this first-of-its-kind system is to allow law . Facilitate law enforcement deliberately incorporating prevention and enforcement agencies to better understand partnerships across jurisdictions and intervention approaches. Th e report noted the socio-economic dynamics that underlie with community stakeholders gang violence must not only be addressed as troubled neighborhoods. In addition, . Expand knowledge about local, a justice issue but also must be viewed more the system allows agencies to identify statewide, national, and transnational broadly as a public health problem. community prevention and intervention services to which gang-involved and gang trends and research through the Th e strategies must focus on the at-risk youth can be referred. CBIS also CBIS Resource Library ecology of neighborhood violence using is designed to enhance and expand data the public health and healing, child available for analysis. Crime analysts from CBIS Components development, job development and across the county can gain access to a community development models that CBIS is divided into four functional plethora of additional data sets to review sections: (1) service referral, (2) mapping, address the major underlying drivers and create integrated views of this data of violence and gang proliferation. In (3) charting communities, and (4) resource on a digital map. By specifi cally assessing library. As part of the resource library, order to achieve this, the City must how community dynamics change, crime develop comprehensive, coordinated, CBIS includes one of the largest gang- analysts can use CBIS to enhance their related open-source intelligence document multi-jurisdictional, schools-centered, predictive policing capabilities. neighborhood-based saturation strategies libraries in the nation. that do not leave children to fend for Th e underlying CBIS database is Th e GIS capabilities of CBIS allow users themselves on the streets. Th ese strategies comprehensive with respect to the data it to assess community capacity and resource must be linked to problem-solving allows end users to access and integrate. data and to assess crime trends. Layers community policing that is designed CBIS combines crime, demographics, available for mapping include community to dovetail with neighborhood eff orts. social service referrals, school dynamics, and school demographics, cross- Comprehensive strategies have to be and other relevant data. It has become an jurisdictional crime data, parole data, as carefully and skillfully implemented to influential information-led policing tool well as Section 8 and public housing data. have any chance of avoiding chaos and that empowers local law enforcement Capitalizing on the versatility of GIS, achieving measurable reductions in gang agencies in making operational decisions other layers are continually being added. activity and violence.2 and improving services.

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Figure 1. CBIS “Find a Th e GIS service referral and mapping capabilities of CBIS have Service” Interface proven to be a big draw to users from law enforcement agencies. A series of screenshots captured from CBIS illustrate just a small portion of the functionality that registered users can access. Th e “Find a Service” interface, with an embedded map showing the location of services, is illustrated in Figure 1. Th e mapping capacities of CBIS are versatile and allow users to show social service resources relative to law enforcement jurisdictional boundaries (Figure 2), to depict crime patterns across jurisdictions (Figure 3), and to examine locations of alcohol outlets (Figure 4).

Figure 2. Map of CBIS in Action Social Service Relative to Law Enforcement Th e comprehensiveness of CBIS as a tool for law enforcement is Agency (boundaries refl ected in the diversity of ways that it has been used by partner law shaded) enforcement agencies for practical solutions and problem solving. . The mapping capabilities have been used to inform decisions about the issuance and denial of Alcohol Beverage Control (ABC) licenses. . The service referral component has been used to refer gang members to job training programs and for referring at-risk and underserved youth to needed social services. . The mapping component has been used to solve and clear Figure 3. Map of a number of burglary series based on assessments of cross- Crimes Relative to Law Enforcement Agency jurisdictional patterns. (boundaries shaded) . Deployment decisions have been made based on crime patterns, including the strategic placement of bait cars to address a surge in auto thefts. . Two CBIS law enforcement partnership agencies have used the system to help obtain grant funding. A tutorial of the CBIS system with practical examples is available a www.cbis-training.org/.

Figure 4. Map of Alcohol Outlets Expanding Partnerships To date, CBIS has more than 45 partners across California and the nation. It continues to attract interest from local, state, and federal level law enforcement agencies. A training module has been developed with the support of Th e California Endowment, and LASD is in the process of seeking California-POST certifi cation for CBIS. Readers interested in learning more about the system may contact Lieutenant Cheryl Newman-Tarwater of the Los Angeles Sheriff ’s Department at [email protected]. More information about this innovative tool can be obtained from the CBIS factsheet.4 ■ Notes 1. This report is available at www.advanceproj.com/index.php?q=/c/resource/sc/up_call_to_action 2. This comment is from page 2 of the Executive Summary available from the link in the previous endnote. 3. http://sheriff.lacounty.gov/wps/portal/lasd/!ut/p/c4/04_SB8K8xLLM9MSSzPy8xBz9CP0os3hLAwMDd3-nYCN3M19LA0_nE DPvMJMAQ39jA_2CbEdFAFVdgp4!/?WCM_GLOBAL_CONTEXT=/wps/wcm/connect/lasd+content/lasd+site/home/ lasd+family/lasd+relevant+links/cbis 4. www.calgrip.ca.gov/documents/CBIS_Fact_Sheet_PDF.pdf

10 What Can We Learn from Public Health? – An Example of Sharing Law Enforcement Spatial Data with Community Partners

Nicole Robinson MSW/MPH, Associate Researcher Milwaukee Homicide Review Commission, University of Wisconsin Madison School of Medicine, and Public Health’s Center for Urban Population Health

Introduction and they may find it hard to navigate the for strategic problem identifi cation and aw enforcement agencies have an department bureaucracy. Police agencies response. MHRC is an action-oriented abundance of important data that can quickly become inundated with research program aimed at reducing the Lare used to identify and respond individual requests from community number of homicides and other violent to a variety of social problems. For their groups and may not have suffi cient crimes using a blend of public health and own internal purposes, law enforcement resources to meet demands. In short, criminal justice philosophies and strategies. agencies collect and track information community organizations often cannot Started in 2005, it is physically located about calls for services (both criminal rely on having their specifi c data requests within the Milwaukee Police Department and non-criminal), incident reports, met consistently or in a timely manner. and assists the entire criminal justice and arrests. Th ese data are used to sector, as well as community partners, with assess patterns across dimensions such The Milwaukee Approach accessing and interpreting law enforcement as crime types; the dates, times, and data for the purpose of identifying and Th e Milwaukee Homicide Review locations of incidents; victim and suspect responding to community problems, Commission (MHRC)1 fi lls the police– demographics; environmental factors monitoring changes in neighborhood-level community information gap by collecting, (e.g., poor lighting, vacant properties); and crime trends, and merging law enforcement analyzing, and disseminating law types of weapons used. Law enforcement data with community sector data for the enforcement data to community partners— agencies monitor—in real time—changes purpose of evaluation. as well as to other municipal agencies and in crime trends for their entire jurisdiction members of the criminal justice system— as well as at the neighborhood and block levels. Unfortunately, these data are not frequently made available to community partners on a regular basis. Sharing this information with community partners, including other governmental agencies such as health departments and nonprofi t organizations, can not only increase the utility of the data, it can also help create partnerships to address crime and disorder and can be used to improve the quality of life for residents, particularly in disadvantaged urban communities. Monthly and annual reports may be available on the police agency’s website but such reports usually lack suffi cient detail to address the specifi c concerns of community partners and most cannot be merged easily with existing organizational datasets. Some community partners have established relationships with a police agency and may be able to request specifi c information. However, most community organizations do not have such relationships with law enforcement,

11 G&PS | August 2012

MHRC is rather unique. Although it relies heavily on to establish, sustain, and (in some instances) staff criminal justice sector data, it approaches its mission over 160 volunteer block watch clubs3 that respond from a public health perspective. One distinguishing to neighborhood issues, including standard crime characteristic of the public health perspective is that it problems and community capacity building such as is principally proactive. Public health practitioners aim after-school activities for youth and mentoring. Th ese to prevent disease and promote the health of entire block clubs lead youth violence prevention activities, communities. Public health is especially concerned neighborhood clean ups, and planting of community with the social and behavioral factors related to health gardens. Some are directly involved in re-entry of and prioritizes strategies that strengthen community formerly incarcerated persons. resiliency by building support systems that directly In the spring of 2011, Safe & Sound sought to develop involve community residents. Th is includes direct a profile of each block club that would answer a variety engagement of community members as part of the of key evaluation questions. When was the club planning and problem-solving process. established and why? How many active volunteers Drug dealing, prostitution, shootings, and homicides did the club have? How often did they work with the are public health issues as well as criminal justice police? How many and which neighborhoods did the issues. Although public health and criminal justice club cover? Are there areas that need a club? Are there conceptual perspectives of these problems are often opportunities to link clubs together? Which violent divergent there are clear parallels—particularly when crimes did the club target and how? Th is information the focus is on problem solving rather than traditional would be used to identify the capacity building needs reactive enforcement responses. With its emphasis of block clubs in the city, determine potential service on holistic solutions involving partnerships with the gaps, and assess each club’s impact on local crime rates. community, the public health approach is distinct from historically reactive law enforcement approaches, yet it Methodology aligns closely with community-oriented and problem- solving approaches to policing. In Milwaukee, the mul­ With the assistance of MHRC, Safe & Sound’s tidisciplinary approach has resulted in clear benefi ts. annual community perception survey was revised to collect the data that would answer the key evaluation questions. Th is survey was administered over the Block Watch Club Example phone by Safe & Sound staff from March to April Law enforcement data can be used to evaluate the 2011. By the April deadline, 46 block club captains eff ectiveness of non-law enforcement initiatives. A had completed the survey. In particular, participants recent MHRC project to measure the reach and were asked to indicate their club’s geographic eff ectiveness of resident-led block clubs demonstrates boundaries using streets and addresses. the importance of information sharing (particularly MHRC staff then compiled Part I violent crime data spatial data) with community partners and the from the Milwaukee Police Department for the years importance of law enforcement data in the evaluation 2007–2010. Block club boundaries and crime incident of community initiated efforts. MHRC’s work locations were geocoded in ArcGIS. Population with a nonprofi t organization is just one example estimates were taken from the U.S. 2010 census. Th e of a multidisciplinary—public health and criminal following calculations were used and depicted in a justice—approach to addressing social problems. Th e series of thematic maps: example illustrates how law enforcement data can augment the evaluation of community eff orts because . Crime Rates: (number of crimes in a year/2010 the data is more comprehensive and includes detailed population) individual-level and neighborhood-level information . Comparison Area: all blocks with center inside on larger geographic areas; most community partners 1/5 mile buffer surrounding the Block Watch have data on a limited number of individuals such as Club area clients served or households surveyed. . Percent Change: [(second year)-(fi rst year)/fi rst Safe & Sound is a nonprofi t organization in year]*100 Milwaukee. Its mission is to reduce violent crime . Relative Change: (percent change between two by blending neighborhood organizing, youth years in comparison area) – (percent change development, and law enforcement strategies.2 between two years in block club area) Safe & Sound organizers over the years have helped

12 Figure 1. Milwaukee Safe and Sound Block Watch Locations 2011 Results MHRC, along with graduate-level interns from the University of Wisconsin-Milwaukee’s School of Architecture and Urban Planning, prepared several maps and spatial analyses illustrating the results. Th e most basic map documented the location and boundary of each block club and plotted the clubs where boundary information was unavailable. See Figure 1. To demonstrate the reach of a club, a similar map was created to document the number of people residing within a quarter mile and a half-mile of the club. Th e findings were very interesting, with 146,388 residents living within a quarter mile of a club, and 232,029 residents living within a half-mile of a known block club. Th e city has just under 600,000 residents, which means that roughly 40% of the population lives near a block club. See Figure 2 on page 13. Next, a map documenting the crime rate normalized by population size was created. Th e map depicts higher and lower crime areas and was used to identify high crime areas where no known block club existed. An immediate follow-up in response to this map occurred when one organizer observed that there were no block clubs in her assigned neighborhood, an area designated as a “high” crime rate area. Th e organizer is working with residents to start a club focused on crime and violence prevention using community organizing strategies. See Figure 3 on page 14. Source: Milwaukee COMPASS. U.S. Census. 2010.

© Cartography by Stephen Hudak Hudak by Stephen © Cartography Th ree additional maps were created that compared the block club boundary with the crime rates in the area immediately surrounding the block watch club. Th at is, a half-mile buff er was created around the block club to serve as the control area. Th e three maps—each comparing the block club territory to the ½-mile buff er—depict total percent and relative changes in total crime rates, crimes against people, and crimes against property. Th e findings were promising; crime decreased in several block club areas between 3%–33%. Without law enforcement data, this analysis would not have been possible. Figure 4 on page 14 illustrates the map for total crime rate change between 2007 and 2010 in Milwaukee Safe & Sound Block Watches. Similar maps have been produced to depict crime rate changes for crimes against people, and crimes against property. Safe & Sound has since developed relationships with 32 additional block watch clubs and plans to expand its capacity by building additional services for these groups. The organization also plans to administer an updated survey to the remaining groups in 2012. With additional information, the Milwaukee Homicide Review Commission will conduct an analysis of each block club based on their specific demographic profile (e.g., the assessment will control for block watches that are active only during certain months, with a subset of populations, or on specific problems).

13 G&PS | August 2012

Figure 2. Total In a related project, MHRC is mapping service Population in Block drought areas—areas the police have identifi ed Watch Buffer Areas as needing community service providers but where they have been unable to identify commu- nity organizations that are physically located in the area or that provide services to it.

Recommendations Th e information needs of the community are greater now than ever before and law enforce- ment agencies should consider deeper partner- ships to expand the dissemination and use of law enforcement data by the community it serves. Every governmental agency and non- profi t organization must demonstrate severity of need (i.e., that a problem exists and is measur- able, that the size or scope of the problem is great and impacts the sustained health and well- being of a community) to validate their existence and in the most tangible way, when requesting funds and advocating for change. More and more entities are required to demonstrate measurable changes in the conditions or behaviors of the individuals, issue areas, and/or communities they serve. What can be learned from the fi eld of public health is that a variety of data sources are needed to identify

Source: Milwaukee COMPASS. U.S. Census. 2010. Hudak by Stephen © Cartography a problem, develop a deeper understanding of the problem, and assess the results of a program or initiative designed to respond to the problem. Law enforcement agencies should heed this and develop formal and expanded mechanisms to share data with community partners that move beyond annual reports and aggregated data that is not electronic, not searchable, and does not support analysis at smaller geographic units of analysis. Police departments (or their research partners) have an opportunity to provide critical and timely evaluation and research assistance to their community partners. ■

Notes 1. To learn more about the Milwaukee Homicide Review Commission visit www.milwaukee.gov/hrc. 2. To learn more about Safe & Sound visit www.safesound.org/. 3. A block club is three or more neighbors who communicate regularly to keep a ‘watch’ over criminal, nuisance, and blight issues that can destroy neighborhood safety and quality of life. Block clubs are usually informal and can focus on addressing long-term and serious criminal issues.

14 Figure 3. Milwaukee Safe and Sound Block Watches and Average Crime Figure 4. Relative Total Crime Rate Change in Milwaukee Safe and Sound Block Rate 2007 01502010 Watches 2007–2010

Source: Milwaukee COMPASS. U.S. Census. 2010. Milwaukee Safe and Sound Block Watches. Source: Milwaukee COMPASS. U.S. Census. 2010. © Cartography by Stephen Hudak by Stephen © Cartography © Cartography by Stephen Hudak by Stephen © Cartography

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15 G&PS | August 2012 NEWS BRIEFS

Deadly Tornadoes Highlight Users Get Instant Access City’s Need for Update of GIS to Global Disease Trends Th e importance of advanced GIS data in relation to emergency response was realized by the public through GIS Technologies safety offi ce of the City of Dunn, North Carolina, and Mapping Apps after deadly tornadoes passed through the city and outlying areas. Communication Director Charlie An emerging tool for tracking infectious disease Callahan commented on working with Geographic and illness outbreaks globally are new disease- Technologies Group (GTG) on updating the ESN mapping applications. Th ese applications, layer and address points so that they will have advanced by geographic information systems (GIS) up-to-date data for future emergencies, noting that technologies, can be used by health organizations, GTG will provide the city with the technological federal agencies, and individuals, to monitor and advancement needed to adequately protect the City research diff erent diseases instantly. An example of of Dunn and its residents. ■ this technology at work is a mobile app engineered by epidemiologists and software specialists at Children’s Hospital Boston, called ‘Outbreaks Near IDV Solution’s New Me,’ which provides free instant access to users on global trends on diseases. ■ Application Enhances Data Sharing Nationwide SOUTHCOM Tracking Public safety will be greatly enhanced after it was revealed that a Visual Fusion application by IDV Crime through Geospatial Solutions will become a part of the Unifi ed Incident Technology Command and Decision Support (UICDS) program. Th e application, Blue Water Area U.S. Southern Command (SOUTHCOM) is Resilient, enables diff erent agencies to instantly using geospatial technology to aid in tracking share data in the event of emergency situations, international crime, including drug traffi cking, such as natural disasters and terrorist attacks. Th is in South and Central America. Trust across will aff ect the way that information is disseminated stakeholders is essential for the crime mapping nationwide, from state and local to federal technology to work, which is gained by ensuring emergency response and security agencies. ■ there is information sharing with counterparts in the region. ■

16 Crime Mapping App Law Enforcement Use New Health Mapping by BAIR Inc. to Track New Tagging System to Website Graham Dodge, who spent time as a Crimes in User Vicinity Track Evidence crime mapper for the U.S. Census Bureau, A new crime mapping application has Patrol offi cers recently began employing has helped develop a new website that been released by BAIR Analytics Inc., a GPS system that was designed to allow provides its visitors with a map designed called RAIDS Online Mobile. Th is law enforcement to “tag” a location through to track diff erent illnesses around the innovative app is the fi rst of its kind to a satellite GPS system installed in police world. Operating at almost real-time use the user’s location to provide them vehicles. Th is enables offi cers to keep track speed, SickWeather monitors cities on with instant data on criminal activity in of specifi c locations where suspects may a global scale for disease and sicknesses, their vicinity. According to BAIR Inc.’s have disposed of critical evidence while giving users the ability to view areas founder Sean Bair, the app was meant being chased. Th is tool proved highly in detail, such as neighborhoods, for to assist law enforcement in quickly eff ective in a recent case where the law outbreaks. ■ disseminating information to the public enforcement offi cer was able to save the and nearby agencies, as well as improving coordinates for a location where evidence communication with the citizens in their was tossed before continuing on to appre- respective communities. Th is app will aid hend the suspect. Later, using the coordi- the general public in being aware of their nates from the GeoTag system, the offi cer surroundings, even while traveling, and is was able to recover the evidence, whereas free on Apple products, such as iPhones in many situations it would have been dif- and iPads. ■ fi cult to fi nd a small piece of evidence over a large geographic location. ■ Charlotte Fire Juvenile Crime Department Deploys Mapping System GIS-Based COP Public Safety at the Charlotte Fire Success through Department (CFD) has been greatly enhanced through the new GIS-based Collaboration Common Operating Picture (COP). Th is Th e Bradley County Sheriff ’s Offi ce has system employs the Charlotte Operations developed a new way to keep track of Based Response Analysis (COBRA) to juvenile off enders through crime mapping provide close to real-time data on live technology. Even with the most advanced events, sending all kinds of information technology in place, the mapping system on specifi c developments at a crime is mainly successful in tracking data such scene to the personnel at the Charlotte- as the address of the off ender for the past Mecklenburg Emergency Management decade due to the cooperation between Offi ce (CMEMO). Th e COBRA system diff erent partners—from social welfare also provides information regarding programs to the Bradley County Juvenile medical events, not just crime-related Court system. It also serves to keep law calls, to give emergency management enforcement agencies, such as the Cleve- offi cials the data to be aware of during land Police Department, as well as other on-the-scene development, as well as community partners, well informed. ■ the ability to analyze information to improve procedures for future emergency situations. ■

17 G&PS | August 2012

Recent Events Mid America GIS Consortium MAGIC 2012 Association of State Criminal Investigative Agencies Symposium (ASCIA) Spring 2012 Conference Kansas City, MO Hyatt Place Madison/Downtown – Madison, WI 4/22/2012 – 4/26/2012 5/13/2012 – 5/16/2012 www.magicgis.org/magic/symposiums/2012/index. http://ascia.org/conference_detail.php?detail=4 cfm IACA Professional Training Series – Crime Analysis Geo Spatial World Forum – “Geospatial Industry and with Crime Mapping World Economy” Dallas, TX Amsterdam, The Netherlands 5/17/2012 – 7/23/2012 4/23/2012 – 4/27/2012 www.iaca.net/Training.asp?TID=720 www.geospatialworldforum.org/ IACP 36th Annual Law Enforcement Information International Association of Law Enforcement Management Conference and Technology Expo Intelligence Analysts (IALEIA) Conference Indianapolis, IN Loews Coronado Bay – San Diego, CA 5/21/2012 – 5/23/2012 4/30/2012 – 5/04/2012 www.theiacp.org/Technology/LEIMSection/ www.ialeia.org/conference LEIM2012Conference/tabid/977/Default.aspx

Risk Terrain Modeling for Spatial Risk Assessment 2012 Omega User Conference Webinar Workshop (6th training conference) Rutgers Center on Public Security Paradise Point Resort 5/01/2012 – 6/19/2012 San Diego, CA www.rutgerscps.org/rtm/webinar.html 5/23/2012 – 5/25/2012 www.theomegagroup.com/company/omega_ conference.htmlasp © Rob Wilson / Shutterstock Wilson © Rob 18 COPS Editorial Staff MAPS Editorial Staff Nicole Scalisi Joel Hunt Chief Editor and Senior Social Science Analyst Social Science Analyst Offi ce of Community Oriented Policing Services National Institute of Justice John Markovic Senior Social Science Analyst Offi ce of Community Oriented Policing Services Jessica Mansourian Program Analyst Offi ce of Community Oriented Policing Services

Marian Haggard Senior Technical Editor Offi ce of Community Oriented Policing Services

Nancy Carlsen Senior Designer Offi ce of Community Oriented Policing Services

The opinions, fi ndings, conclusions, or recommendations contained in this publication are those of the authors and do not necessarily represent the offi cial position or policies of the U.S. Department of Justice. References to specifi c agencies, companies, products, or services should not be considered an endorsement by the authors or the U.S. Department of Justice. Rather, the references are illustrations to supplement discussion of the issues.

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