I I 1· • N CJ RS ,- ': ff.EB 16 1995 -' ACQUISITIONS

J Community Policing for Safe Neighborhoods

Partnerships for the 21st Century

Conference Proceedings

Sponsored by:

National Institute ofJustice Arlington, Virginia U.S. Department ofJustice August 23-25, 1993 Table of Contents

The New Policing: Confronting Complexity

Herman Goldstein, Evjue-Bascom Professor of Law, University of Wisconsin at Madison ...... 5

Keynote Speakers:

Michael J. Russell, Acting Director, National Institute of Justice, U.S. Department of Justice ...... 15 John Wilson, Acting Assistant Attorney General, Office of Justice Programs, U.S. Department of Justice ...... 16 The Honorable Lee P. Brown, Director, Office of National Drug Control Policy, Executive Office of the President ...... 16 The Honorable Janet Reno, Attorney General of the United States ...... 21

Panel Presentations:

Street Level Community Policing ...... 27 Community Policing Evaluations ...... 33 Street Level Drug Enforcement ...... 37 International Panel on Community Policing ...... 41 Use of Civil Remedies as Alternative Sanctions ...... 45 Partnership Panel: U.S. Department of Education ...... 49 The Homeless in the Community ...... 51 Hot Spots of Crime ...... 55 Personnel Issues in Community Policing ...... 57 Bureau of Justice Assistance's Community-Oriented Policing Demonstration Program and Prototype ...... 61 How Abuse of Force Can Undermine Community Policing ...... : ...... 65 Training Workshop: First Line Supervision for Community Policing ...... 69 Drug Use Forecasting and Community Policing ...... 71 Union Perspectives on Community Policing ...... 73 Partnership Panel: Local Efforts to Rebuild Communities ...... 75 Community Policing in Small Cities and Rural Areas ...... 79 Training Workshop: Alternative Dispute Resolution ...... : ...... 81 Training Workshop: Implementing the Americans with Disabilities Act in Law Enforcement Agencies ...... 83 Executive Forum: Law Enforcement Executives Face the Issues ...... 85 Plenary Panel: Community Partnerships in American Cities ...... 89 Community Policing and Criminal Justice System Partnerships ...... 93 Drug Market Analysis ...... 97 Family Violence: Child Abuse and Community Policing ...... 101 Community Policing and High Risk Youth ...... 105 Partnership Panel: U.S. Department of Health and Human Services ...... 107 Training Workshop: Policing Immigrant Communities ...... 109

Community Policing Conference • 3 Issues in Citizen-Police Partnersh_ips ...... 113 Community Policing and Accreditation ...... 117 National Service: How It Can Help Community Policing ...... 119 Partnership Panel: U.S. Department of Housing and Urban Development ...... 121 Partnership Panel: U.S. Department of Labor, Youth Fair Chance/ Youth Opportunities Unlimited (YOU) Program ...... 125 Training Workshop: Law Enforcement Response to Child Abuse ...... 129 Triad Program: Community Connections with the Elderly ...... 131 Varieties of Community Policing Around the Country ...... 135 Mobilizing Municipal Services for Community Policing ...... 139 Police/Public Health Partnerships ...... 141 Partnership Panel: Bureau of Justice Assistance ...... 143 Training Workshop: Performance Measurement and Appraisal of Community Policing ...... 145 Plenary Panel: Community Government ...... 147 Community Policing in Public Housing ...... 153 School Violence: Partnerships for Community Policing ...... 157 Mediating Disputes in the Community ...... 161 Technology and Community Safety ...... 165 Partnership Panel: Office for Victims of Crime ...... 167 Training Workshop: Introduction to Problem So!ving ...... 169

Appendix, List of Presenters

Community Policing Conference • 4 The New Policing: Confronting Complexity

policing label because they believe they Herman Goldstein, Evjue-Bascom constitute an effort to placate an overly­ Professor of Law, University of demanding and critical segment ofthe Wisconsin at Madison community intent on exercising more Community policing is well on its control over their operations. The popularity way to becoming a common term in ofthe term has resulted in its being used to households throughout the nation. That is a encompass practically all innovations in satisfying development for many, but it policing, from the most ambitious to the causes some anxiety and discomfort for most mundane, from the most carefully others. What accounts for the mixed reactions? "The downside ofthis Under the rubric ofcommunity new-found popularity is policing, progressive police administrators that the title ofthe and interested citizens have, for more than a concept, community decade, been working hard to design and implement a form ofpolicing that better policing, is_widely used meets the extraordinary demands on the without any concern for police in the 1990s. Within these circles, the its substance." term community policing has been used to embrace and intricately weave together thought-through to the most casual. And in initiatives that have long been advocated for the larger public forum, the label is being modem-day policing. I think it fair to say used in ways that increase public that these explorations have stimulated more expectations ofthe police, that create the productive thought and experimentation than impression that, somehow, on has occurred at any previous time in the implementation, community policing will history ofpolicing in this country. These provide a panacea for not only crime, efforts, taken together, have created a new disorder, and racial tensions, but many ofthe feeling ofexcitement and optimism in a other acute problems that plague our urban field that has desperately needed an injection areas. ofboth. It is understandable, therefore, why With such varied meanings and such the current wave ofpopular support for broad expectations, the use ofthe term community policing is so welcome in many community policing creates enormous quarters. It gives a tremendous impetus to problems for those seriously interested in these new initiatives. effecting meaningful change in the police. The downside ofthis new-found Carefully developed ·initiatives bearing the popularity is that the title ofthe concept, community policing label, fragile by their community policing, is widely used without very nature, are endangered because any concern for its substance. Political superficial programs are so vulnerable to leaders and, unfortunately, many police attack. leaders hook onto the label for the positive I understand the craving for a clear images it projects, but do not engage with­ definition ofcommunity policing. I or invest in-the concept. Some police empathize with the officer who has personnel, relying on little more than the instructions from his or her chiefto title, fight initiatives bearing the community

Community Policing Conference • 5 implement community policing in 60 days. simplification is joined by well-intentioned And I feel for those in attendance here who practitioners who, left behind after the may be expected-by those who have paid cheerleading, understandably want to know­ your way-to bring home a kit that will in specific detail-what they are supposed to enable you to quickly put community do. policing in place. By the end ofthe I find it helpful to go back to basics­ conference, you will have learned much that to acknowledge, at the outset, what is rarely will be helpful, useful, and even subject to acknowledged. The policing ofa free, immediate implementation. But at the risk diverse, and vibrant society is an awesome, ofincreasing levels offrustration, I want to complex task. The police are called upon to argue that the single, most important deal with an incredible array ofquite message you can take away from this different behavioral problems, each conference is that the overriding need in perplexing in its own way. The police have attempting to effect change in policing is to tremendous power-to deny freedom and to confront the complexity ofthe task. use force, even to take a life. Individual We all value communicating about officers exercise enormous discretion in concepts clearly and in simplified terms. using their authority and in making many But simplification, in my view, has been the decisions affecting our lives. The very greatest enemy ofprogress in policing. The quality oflife in this country and the field already suffers severely precisely equilibrium ofour cities depend on the way because so much in policing is in which the police function is carried out. oversimplified. Let me illustrate. Given the awesome, complex nature The police labor heavily under the ofthe police function, it follows that burden ofbeing held responsible for dealing designing the arrangements and the with enormous generic problems such as organization to carry it out is equally crime, violence, and disorder. These are complex. Yet, not enough systematic simple, convenient terms. But their attention has been given to meeting these common and indiscriminate use hides the needs over the years. We are now in a enormous complexity ofthe police task. period in which more such attention is being How are the police supposed to deal with given to the police function than at any prior these amorphous, overwhelming problems? time. We ought not to lose patience because Through equally generic responses-like law we have not yet come up with the perfect enforcement or patrol-simple terms model. And we ought not get hung up on commonly used by the public without any trying to simplify change primarily so that awareness ofthe methods they embrace and we can give uniform meaning to a single, their value. Ifcommunity policing takes its catchy, and politically attractive phrase. We place alongside law enforcement as still another simplistic, generic response to a "We ought not to lose simplistic characterization ofthe police patience because we function, not much will have been gained have notyet come up and the concept will quickly lose its credibility. One understandable reaction to with the perfect model. " this dilemma is to press for definition and simplification, to seek to reach agreement on are engaged in nothing less than rethinking, a pure model ofcommunity policing so that in all ofits multiple dimensions, the the impostors, on being measured against it, arrangement for the policing ofour society. will be exposed. This pressure for We ought to use this unique opportunity to

Community Policing Conference • 6 move more aggressively to confront the important, it requires time, patience, and complexity in what we are trying to do. We learning from our experience. need to open up explorations, rather than I've painted a rather broad prematurely close them down. We need to perspective (and a very ambitious, difficult better understand the complicated, rather agenda for change), but even this than search for the simple. perspective is not sufficiently broad. To Some might argue I've overstated the succeed in improving policing, we need to need, that we can get going without taking move beyond focusing exclusively on the on the enormous task of developing a master police agency. We need urgently to alter the plan for redesigning policing in this country. public's expectations ofthe police, and we I agree that you can get going. Many ofyou need to revise the fundamental provisions have. And I would urge the others among that we as a society make for carrying out you to do so. I would exhort you to the police function. We need, for example, implement some ofthe most common to refine the authority granted the police (to changes associated with community curtail it in some areas and expand it in policing, as, for example, the permanent others). We need to recognize the discretion assignment ofofficers to specific beats with exercised by the police and provide means a mandate to get to know and relate to the for its review and control. We need to community. I sense there is now widespread provide the police with the resources that and very persuasive support for enable them to get their job done. We need, decentralization, permanent assignments, in other words, without any compromise in and the development ofpartnerships with our commitment to democratic values, to the community. But in implementing these bring expectations and capacity more into changes, I would urge you to do so with at least an awareness ofthe larger picture. "We.need urgently to alter Meaningful, lasting change in the public's expectations of policing cannot be achieved in isolation. the police, and we need to Policing is like a large, intricate, complex apparatus with many parts. Change ofany revise the fundamental one part requires changes in many others provisions that we as a and in the way the parts fit together. For society make for carrying example, you may be able to quickly alter out the police function." the way in which officers are assigned and how they patrol. But for the full value of sync so that a job increasingly labeled as such changes to be realized, and for them to impossible is possible. be sustained, you will ultimately need to Having dumped this rather heavy make changes in the organization and load on you, let me try to clarify what I leadership ofa police department; in its mean by the multi-branched nature of staffing, supervision, training, and change in policing by examining, in some recruitment; and in its internal working detail, five different branches along which environment. Thus, a change in direction we are currently moving. They are requires more than tinkering; it requires, if it illustrative. I am not, by any means, trying is to be effective, simultaneously to be comprehensive. I intend to describe orchestrating change in many areas affecting the specific development and identify some the enterprise. This requires careful ofthe complexities it raises. In the course of planning and coordination, and perhaps most doing this, I hope to illustrate the

Community Policing Conference • 7 interrelationship and interdependenct? ofthe given the time and license to do so. But in many factors affecting change in policing. the larger scheme ofthings, the need to 1. Refining the police .function and reduce public expectations is every bit as public expectations. important as the need to broaden the police The new forms ofpolicing broaden function-not simply to m~e limited the police function from crime fighting, resources fit the demand, but for more without any abdication ofthat role, to complex reasons. Many ofthe most responding to the broader range offunctions troublesome aspects ofpolicing stem from in which the police are engaged. the pressure that has been exerted on the Maintaining order, dealing with quality of police to appear omnipotent, to do more than life offenses, and fixing the "broken they are authorized, trained, and equipped to windows" are now recognized as much more do. Police tend to like challenges. The important than previously thought to be. challenge to fill needs-to live up to one's The police have become more proactive, image as omnipotent-has led to the taking of committed to preventing incidents rather short cuts, the stretching ofauthority, and, as than simply reacting to them. These shifts a consequence, the potential for abuse of in emphasis appear to have gained that authority. It is dysfunctional to widespread support. compound this syndrome. And it is But we need to open our eyes to the demoralizing to the thoughtful, dedicated avalanche ofbusiness that this open-ended officer to create the expectation that he or definition ofthe police function invites, lest she can do more than take the edge offof it constitute a serious self-inflicted wound. some ofthe more intractable problems that The volume and nature ofthe miscellaneous the police confront. tasks that accrue to the police are infinite. The new policing seeks to make the Current cutbacks in other government police job more achievable by realigning services are steadily adding to their number. what the police do aiid do not do by giving In areas that are starved for social services, higher priority to some tasks and lower the slightest improvement in police response priority to others, by reducing public generates more business for the police. As a expectations and leveling with the public flooding river finds the lowlands, the about police capacity, by engaging the incredible array ofmiscellaneous problems public in taking steps to help themselves, that surface in a large urban area will find and by connecting with other agencies and their way to the agency most willing to the private sector so that there is someone accept them. there to whom to throw the ball. We need to Ifyou have not personally invest much more, in our individual experienced this phenomenon, talk to the communities, in working through the officer assigned to a specific neighborhood questions that arise in trying to achieve this with a broad mandate to improve service. better alignment. Within a very short period oftime, the 2. Getting involved in the substance officer is overwhelmed by a need for ofpolicing. services that-despite the greatest creativity A common theme in initiatives under and resourcefulness-far exceeds his or her the community policing umbrella is the capacity to deliver. emphasis on improving relationships with Very often, the police can do more to the citizenry. Such improvement is vital in satisfy citizen needs. They can identify order to reduce tensions, develop mutual problems and take actions that result in trust, promote the free exchange of mitigating or solving them, when they are

Community Pollclng Conference • 8 information, and acquaint officers with the teenage gang that assembles at the culture and life style ofthose being policed. convenience store each Friday night, and the Improved relationships are important panhandler who harasses passersby on a in and ofthemselves. They would constitute given street corner. Analyzing each ofthese a major advance in some cities. But many quite different problems in depth leads to the would argue that they merely lay the realization that what may work for one will groundwork and create an environment in not work for the other, that each may require which to strive for more. When citizens ask a different combination ofresponses. That ifcommunity policing works, they are not so is the beginning ofwisdom in policing; one much interested in knowing ifthe size clearly does not fit all. community likes the police or ifthe police Problem-solving, as I have described are getting along with the community. it, is being integrated into community Rather, they usually want to know ifthe policing initiatives in many jurisdictions. It community policing initiative has had an dominates the commitment to change in impact on the problems ofconcern to them­ some jurisdictions. The need to focus on their fear ofusing the streets, the abandoned specific substantive pieces ofpolice business cars in the neighborhood, or the gang that is commendably reflected in this conference, has been intimidating them. Ifthe initiatives where workshops have been scheduled on that have been taken do not go beyond such problems as the homeless, family improving relationships, the risk is created violence, high risk youth, immigrants, child that community policing will become just abuse, the elderly, and school violence. another means by which police operate We need to direct more ofthe without having a significant, demonstrable momentum associated with community impact on the problems the police are policing to focusing on these and similar expected to handle. problems. Smarter policing in this country This tendency in policing to become preoccupied with means over ends is ""...,t means t'hat, at t'h e obviously not new. It was this concern that micro level, a beat gave rise to my own work on problem­ officer should have in­ oriented policing. I continue to feel strongly depth knowledge about that the police must give more substance to the corner drug house, community policing by getting more the rowdy teenage gang involved in analyzing and responding to the specific problems citizens bring to their that assembles at the attention. convenience store each This calls for a much heavier Friday night, and the investment within policing in understanding panhandler who the varied pieces oftheir business, just as the harasses passersby on a medical field invests in understanding given street corner. " different diseases. This means that police, more than anyone else, should have a detailed understanding ofsuch varied requires a sustained effort within policing to problems as homicides involving teenage research substantive problems, to make use victims, drive-by shootings, and carjacking, ofthe mass ofinformation and data on and it means that, at the micro level, a beat specific problems accumulated by individual officer should have in-depth knowledge police agencies, to experiment with different about the corner drug house, the rowdy alternative responses, to evaluate these

Community Policing Conference • 9 efforts, and to share the results ofthese capacity, will reduce crime and disorder to a evaluations with police throughout the minimum. country. I wish we could do more to Advanced forms ofcommunity reorient the work ofresearch and policing reject many ofthese characteristics development units in police departments and ofpresent-day policing. A neighborhood to entice some ofthe best minds in the field police officer, for example, is expected to ofcriminology and related specialties to have a much broader interest than simply assist in these efforts. The police should not enforcing the criminal law-to exhaust a only make greater use ofresearch done by wide range ofalternatives before resorting to others; they should themselves be engaged arrest for minor offenses, to exercise broad in research. discretion, and to depend more on 3. Rethinking the relationship resourcefulness, persuasion, and cajoling between the police and the than on coercion, image, and bluff. criminal justice system. Reconciling these different Buried in all ofthe rhetoric relating perspectives has always been difficult. to community policing is the fact that, with Some would even argue the two postures are little notice and in subtle ways, the long­ incompatible. Simplistically, they are often standing relationship between the police and the criminal justice system is being "A neighborhood police redefined. This is a radical change. But it is officer, for example, is given scant attention in the literature on expected to have a much community policing, and the full broader interest than consequences ofthe changes-and their simply enforcing the relationship to some ofthe developments most commonly·associated with community criminal law-to exhaust a policing-have not been adequately explored. wide range ofalternatives Since the 1960s, it has been before resorting to arrest customary to refer to the police as an for minor offenses, to integral part ofthe criminal justice system. exercise broad discretion, It has long been recognized that the role of and to depend more on the police in enforcing the criminal law has an overwhelming, pervasive influence on the resourcefulness, per­ police-on the shape oftheir organiz.ations, suasion, and cajoling the attitudes and priorities ofpersonnel, and than on coercion, image, their relationship to the community. Police and bluff." officers are referred to, significantly, as "law enforcement officers." The public expects a distinguished as the "hard" and "soft" police officer, first and foremost, to be approaches in policing. But as a result ofa committed to enforcing the criminal law. sequence ofdevelopments in the past The felt need for objectivity and neutrality in decade, the tension between the two law enforcement results in the police being approaches has been narrowed. characterized as having no discretion. And What has happened? So long as the the commitment to enforcement carries with police were so intricately intertwined with it a commitment on the part ofthe police to the criminal justice system, they came to inflating their capacity to enforce the law in depend more heavily on the system. Thus, the hope that their image, if not their real as violence and especially crimes associated with drugs increased, the police made more

Community Policing Conference• 10 and more arrests ofserious offenders. To congested state ofaffairs in the criminal deal with disorder on the streets, they justice system means, too, that the police arrested thousands ofminor offenders as must conserve their use ofthat system for well-often stretching their authority those situations in which it is most somewhat, as police are pressured to do-in appropriate and potentially most effective. order to restore order. Predictably, the This latter need should lead the police and criminal justice systems in most large urban others committed to community policing to areas-and many smaller ones as well-have enthusiastically join Attorney General Janet been overwhelmed to the point that it is no Reno in speaking out for a more sensible longer possible for the systems to accept national criminal justice policy-one that some serious offenders, let alone minor curbs the indiscriminate overuse ofthe ones. system which, unchecked, will draw scarce The consequences offacing up to the funds away from the police and from limited capacity ofthe criminal justice preventive programs where they can do system are more far-reaching than is more good. commonly recognized. Police can no longer 4. Searching/or alternatives. use arrest, as they so freely did in the past, to The diversification ofpolicing-the deal with a wide variety ofambiguous move from primary dependence on the situations. Moreover, the amorphous aura of criminal law to the use ofa wide range of authority on which the police have so different responses-is among the most heavily depended for getting so much of significant changes under the community their job done, rooted in their capacity to policing umbrella. It enables the police to arrest, has been greatly diluted. Police move away from having to "use a hammer officers today are simply not as powerful (the criminal justice system) to catch a fly." and threatening, 'in the eyes ofthose who It enables them to fine tune their responses. most frequently come in contact with them, It gives them a range ofoptions ( or tools) because they can no longer use the criminal that, in their number and variety, come justice system as they once did. closer to matching the number and variety of What does this mean for some ofthe problems they are expected to handle. central themes under the community These may include informal, common-sense policing umbrella? It means that there are responses used in the past but never formally new, pragmatic reasons for searching authorized. intensively for alternatives to the criminal The primary and most immediate justice system as the way in which to get the objective in authorizing the police to use a police job done. greater range ofalternatives is to achieve It also means that there is now an greater effectiveness. Quite simply, added incentive to cultivate positive mediating a dispute, abating a nuisance, or relationships with the community. The arranging to have some physical barrier police need to replace the amorphous removed may-without making an arrest-be authority that they previously derived from the best way to solve a problem. the criminal justice system and on which But there are additional benefits in they have depended so heavily in the past. giving police officers a larger repertoire of What better way to do this than arm responses. Currently, for example, one of themselves with what Robert Peel the greatest impediments to improvement in characterized in 1829 as that most powerful policing is the strength ofthe police form of authority, the "public approval of subculture. That subculture draws much of their existence, actions, and behavior." The its strength from a secret shared among

Community Policing Conference • 11 police: that they are compelled to bend the interconnection between and among needed law and take short-cuts in order to get their changes in policing. Satisfying the need job done. Providing the police with requires changes in recruitment standards legitimate, clear-cut means to carry out their and training, requires setting out guidance functions enables them to operate more for the exercise ofdiscreti.on, and requires, honestly and openly, and therefore has the above all else, inculcating values in officers potential for reducing the strength-and, as a that, in the absence ofspecific directions, consequence, the negative influence-of the guide their decisionmaking. Meeting these police subculture. needs, in turn, connects with the fifth and The diversification ofoptions is also final dimension ofchange that I want to set responsive to one ofthe many complexities before you. in the staffing ofpolice agencies. It 5. Changing the working recognizes, forthrightly, the important role environment in a police agency. ofthe individual police officer as a decision If new forms ofpolicing are to take maker-a role the officer has always had but hold, we must get much more serious about that has rarely been acknowledged. changing the working environment within Acknowledging and providing alternatives police agencies. Much has been written contributes toward redefining the job ofa about new management styles supportive of police officer by placing a value on thinking, community policing. But with a few on creativity, and on decisionmaking. It remarkable exceptions, relatively little has credits the officer with having the ability to been achieved on the ground. And where analyze incidents and problems and, rather modest changes have been made, they are than respond as a robot, gives the officer the often lost with a change in administration or license to choose among appropriate when the handling ofa single incident responses. brings embarrassment to a department­ But how do we move into this idyllic resulting in a reversion to old styles of world in which we formally invest so much control. responsibility in the lowest-level employee, By working environment, I refer usually operating independently on the primarily to the atmosphere and expectations streets? Not quickly, that's for sure. Absent that superiors set in relating to their sufficient preparation, the results may be subordinates. troublesome. This is especially so if We know all too well the officers, in their enthusiasm, blend together environment in a tradition-bound department community support and their desire to please where managers, supported by a hefty book the community to justify using methods that ofrules, tend to supervise through a tight are either illegal or improper. The paramilitary, top-down form ofcontrol­ empowerment ofofficers in a department perhaps reflecting the way in which they that has a record ofabuse or corruption is have historically sought to achieve control in obviously much more problematic. Concern the community. about control can dampen one's enthusiasm The initiatives associated with for all new forms ofpolicing-until one community policing cannot survive in a recognizes that the controls on which we police agency managed in traditional ways. currently depend are much less effective Ifchanges are not made, the agency sets than they are often thought to be. itself up for failure. Officers will not be The need to assure adequate controls creative and will not show initiative ifa high ofa more independent decision maker value continues to be placed on conformity. provides a good illustration ofthe They will not be thoughtful ifthey are

Community Policing Conference• 12 required to adhere to regulations that _are rank who cite their superior-rather than the thoughtless. And they will not aspire to act complexity oftheir job-as their major problem. "Officers will not be Because this problem is of such creative and will not show magnitude and so frustrating, one is tempted initiative ifa high value to propose some bold-even radical-steps continues to be placed on that legislative bodies and municipal chief conformity. They will not executives might take to address it. Should be thoughtful ifthey are early retirement be made more attractive for the recalcitrant? Should consideration be required to adhere to given to the proposals recently made in regulations that are England-calling for the elimination of thoughtless." unnecessary ranks, with continued service in rank conditioned on periodic review, and a as mature, responsible adults if their system ofperformance-based bonuses? superiors treat them as immature children. But before one can expect support In my observations of officers for such measures, the public will •need to be working in a newly defined mode, I've satisfied that police executives have constantly been impressed by their exhausted whatever means are available to enthusiasm-by their grasp ofthe concept, them for turning the situation around. And their appreciation ofits many dimensions, when one looks at what has been done, it is and the skill with which they fill their new troubling to find that a department's roles. I've watched officers flourish when investment in the reorientation of they have been cut loose and assigned to a management and supervisory personnel given neighborhood. They solve problems; often consisted ofno more than "a day at the motivate citizens to join together to do academy"-and sometimes not even that. things for themselves, and create a feeling of How much ofthe frustration in eliciting security and goodwill. Equally important, support from management and supervision the officers find their work demanding but stems from the fact that agencies have very satisfying. We have, in rank-and-file simply not invested enough in engaging officers, an enormous supply oftalent, senior officers, in explaining why change is energy, and commitment that, under quality necessary, and in giving these supervisors leadership, could rapidly transform and managers the freedom required for them American policing. to act in their new role? The major impediment to tapping Some efforts to deal with the this wellspring is our failure to engage and problem have been encouraging. The elicit a commitment from those having adoption oftotal quality management management and supervisory (TQM) in policing has demonstrated very responsibilities. It is disheartening to positive results and holds much promise. It witness a meeting ofthe senior staff ofa ought to be encouraged. We should take an police agency in which those in attendance important lesson away from these are disconnected from and often openly experiences with TQM. Training to support hostile to changes initiated by the chief changes ofthe magnitude now advocated in executive and supported by a substantial policing requires more than a one-shot effort proportion ofthe rank-and file. It is equally consisting of a few classroom lectures. It disheartening to talk with police officers on requires a substantial commitment oftime in the street and officers of lower supervisory different settings spread over a long period;

Community Policing Conference• 13 a special curriculum; the best facilitators; extraordinary accomplishments in policing and the development ofproblems, case in the past two decades by police agencies studies, and exercises that engage the that have taken on some ofthese difficult participants. It requires the development of tasks. We tend, in my opinion, to teamwork, in which subordinates contribute underestimate the reservoir ofability and as much as superiors. And it requires that commitment in police agencies-especially the major dimension ofthe training take the among rank-and-file·officers. And we tend, form ofconscious change in the day-to-day also, to underestimate the willingness of interaction ofpersonnel-not in a training individual citizens and community groups at setting-but on the job. That's admittedly a the grass-roots level to engage with the tall order. police and to support change. Viewed Conclusion collectively, these achievements should be a I have described five different source ofoptimism and confidence as now, dimensions ofchange associated with building on past progress and capitalizing on community policing. I've tried, in doing so, current momentum, we seek more aggressively to effect change that is deeper "Training to support and more lasting. changes ofthe magnitude But there is an even more now advocated in policing compelling, overriding incentive to struggle requires more than a one­ with these complexities. In this country-this democracy ofours-we are being challenged shot effort consisting ofa today, as we have never been challenged in few classroom lectures. It the past, to commit ourselves anew to our require~ a substantial unique character-to the high value we as a commitment oftime in nation place on diversity, on equality, on different settings spread protecting individuai rights, and on protecting the freedom ofall citizens to over a long period. ..." move about freely and to enjoy a tranquil life. The social problems that threaten our to illustrate the need for greater depth in our character as a nation are increasing, not current change efforts, to illustrate the decreasing. It will take major changes-apart interrelationships and interdependence ofthe from those in the police-to reduce these many pieces in the puzzle, and to illustrate, problems. In this turbulent period, as we overall, the complexity ofbringing a new struggle with these problems, it is more configuration ofpolicing into being. important than ever that we have a police Dwelling on complexity is risky, for capacity that is sensitive, effective, and it can be overwhelming and intimidating. It responsive to our unique needs-a police is difficult. It turns many people off. But capacity that, above all else, is committed to for those who get involved, the results can protecting and extending democratic values. be very rewarding. That is a high calling-and one that should I've been impressed by the inspire all ofus to intensify our efforts.

Community Policing Conference• 14 Keynote Speakers

Congress in 1968 and has worked to provide Michael J. Russell, Acting Director, support for research and demonstration National Institute of Justice, U.S. programs that will have the maximum Department of Justice impact to prevent and reduce crime and On behalf ofthe Institute and the improve the criminal justice system. U.S. Department ofJustice, welcome to this Congress expanded the Institute's mandate national conference, "Community Policing under the 1988 Anti-Drug Abuse Act and for Safe Neighborhoods: Partnerships for the 1990 Crime Control Act to identify what the 21st Century." The key word in the works and why among anticrime and conference title is "partnerships." The antidrug programs nationwide. NIJ National Institute ofJustice works in close celebrates its 25th anniversary this year, 25 partnership with bureaus in the Office of years ofservice to criminal justice. Much of Justice Programs to serve state and local that work has been devoted to determining agencies. Those bureaus include the Office which programs are succeeding in ofJuvenile Justice and Delinquency combating crime. More and more Prevention, the Bureau ofJustice Assistance, communities are now investing in the Bureau ofJustice Statistics, and the community policing as a way of Office for Victims ofCrimes. NIJ also strengthening the critical tie between police works in close partnership with police and their communities. departments and criminal justice agencies The Institute has supported an across the country, with state, county, and ambitious research agenda in community local governments, and with executive policing and is now exploring measures of branch departments such as Housing and performance in community policing, Urban Development, Health and Human recruitment ofpatrol officers, and case Services, Labor, and Education. studies of model community policing At this conference today are more programs. These are priority topics for NIJ than 700 participants from across the United under its 1993 program plan. The Institute States along with representatives from a is finalizing reports on community policing number offoreign countries. Participants in efforts in Madison, Wisconsin, and Houston, this audience include chiefs ofpolice and Texas, for publication later this year. sheriffs from more than 50 cities and Identifying issues that will face the counties; line officers; and representatives criminal justice community in the 21st from community organizations and all levels century is a priority at the Institute. NIJ has ofgovernment. Our purpose is to develop established focus groups with police, partnerships to fight crime and drugs and corrections, and prosecutors to identify make communities safer places in which to emerging issues. That way, federal live, to work, and to raise families. One of resources can be focused now for maximum the keys to this joint effort is community impact on those problems in the future. policing. Recently, for example, the Institute brought The National Institute ofJustice is together a group of newly appointed police the research and development arm ofthe chiefs and newly elected sheriffs from across Department ofJustice. It was established by the country to provide insights on emerging

Community Policing Conference• 15 issues. The Institute also is establishing a addressing serious, violent, and chronic new Health and Justice Working Group to delinquency in our communities. The bring together the health and criminal justice strategy calls for family support, community communities on a number ofhealth-related involvement, comprehensive delinquency issues facing corrections, law enforcement, programming, and an acc<;>untability-based and victims' services. The Institute is also system ofintervention and graduated working on the development and transfer of sanctions for delinquent youth. technologies to make communities safer. OJJDP's community planning model NIJ has been studying community includes active police involvement to policing for many years. Through the identify problems, determine service needs, partnerships developed at this conference, and develop program solutions. The we can transfer this research to action for National Institute ofJustice has led the way communities across the country. in developing the theoretical basis and establishing the validity ofthe community John Wilson, Acting Assistant policing model. The Bureau ofJustice Attorney General, Office of Justice Assistance has implemented community Programs, U.S. Department of Justice policing in a variety ofprograms including This conference gives us the the Weed and Seed program, in which law opportunity to take stock ofwhat we know enforcement was linked to other municipal about the theory and practice ofcommunity and social services to remedy neighborhood policing. It comes at a time ofheightened conditions that breed crime and interest in the interaction ofthe community deterioration. The program incorporated and the police. The police alone cannot community policing strategies for both solve the problems ofcrime and drug abuse crime suppression and community-building, that have been ruinous to many urban with community policing serving as a bridge communities. Rebuilding neighborhoods to neighborhood-based services. Other BJA requires the entire range ofcommunity community-based programs included an resources to address unmet needs that innovative neighborhood-oriented policing contribute to critne and violence. program, the development ofa Community-based approaches to comprehensive model for community delinquency, crime, and violence can restore oriented policing, and the new police hiring the well-being ofcrime-ridden support program. neighborhoods in this country. Supporting community-centered The Honorable Lee P. Brown, solutions to problems is not a new concept. Director, Office of National Drug The Office ofJuvenile Justice and Control Policy, Executive Office of Delinquency Prevention (OJJDP), for the President example, has used this model in its gang Many ofyou this morning have been violence, child abuse and neglect, missing telling America what it may not want to and exploited children, school safety, and hear: Our children are dying. They are gang and drug policy programs. Each of killing and being killed. It is a problem for these programs focuses on partnership­ the general population, but it is a calamity in building, the development ofan appropriate the African-American community. No less law enforcement response, problem-solving, than 70 studies and editorials published in networking, resource management, and job June 1992, by 10 scientific journals ofthe skills enhancement. OJJDP has also American Medical Association, point to a developed a comprehensive strategy for worsening ofviolence among our youth. In

Community Pollclng Conference• 16 the same month, headlines revealed that babies will die before their first birthday; gunshot wounds were the second leading some 4.4 million babies will be born to cause of death among all high-school-aged unmarried women; some 2 million babies children in America. Auto accidents were will be born to teen mothers; over 15,000 the first cause ofdeath in the general teenage children, 19 or younger, ~ill die by firearms; population, but not in the African-American over 2,700 children under 5 will die by community. For over a decade now, homicide; over 9,000 children, 19 or homicide, usually by handgun, has been the younger, will commit suicide; some 1.6 number-one cause ofdeath ofyoung black million young people, aged 16 to 24, will males. A recent survey on gun violence fail to complete high school; almost 600,000 reported that among suburban high-school­ children under 18 will be arrested for aged children, the homicide and suicide rate alcohol-related offenses, some 350,000 for by gun was one per 100,000; in the inner drug offenses, and over 300,000 for violent cities, the rate was 28 per 100,000. crimes; some 7.9 million public school Many ofyou are familiar with students will be suspended; and about 3.6 another report issued in April 1992 by the million infants will be born into poverty. National Center on Institutions and Such data should be used as a Alternatives. It found that on an average catalyst for change, not to reinforce day in 1991, 42 percent ofAfrican­ stereotypes. People ofgood will will see in American males aged 18 to 35 who lived in these data an argument for a massive Washington, D.C., were in jail or prison, national campaign to address the causes of awaiting trial or sentencing, on probation or violence in our society. However, we parole, or being sought under warrants for should be wary ofthose who would use the their arrest. That is a national shame. With data to reinforce the belief that respect to safety in the African-American disadvantaged citizens are solely responsible community, federal health officials have for their powerlessness and should forever identified six specific problems: immediate be relegated to the bottom rung on the ladder access to firearms; alcohol and drug abuse; ofopportunity and success. drug trafficking;· poverty; racial Looking at the general increase in discrimination; and, most disturbing, a gun violence among children, the editor ~f cultural acceptance ofviolent behavior. The the American Medical Association journal federal Centers for Disease Control have said, "Violence in America is a public·health cited these problems as contributing factors emergency." Ifthat is so for the general in making homicide the leading cause of population, then violence in the African­ death among young black men. American community is a national disaster As the leading cause ofdeath for any that is literally killing large portions ofthis segment ofthe population, so widespread generation. It is more than a public health that it is tracked like a communicable emergency; it is a national scandal. Many of disease, homicide should be put on the top you have been beating the drum for years on of our domestic agenda. The problem, this issue. It appears that you are beginning however, is not new; it is just worse. to be heard, at least by the medical Marian Wright Edelman, in a recent profession. That is significant, because now, publication, states that absent definitive more than at any other time in the history of action by this nation during the next four America, the police are being asked to cope years, over a million American babies will with the collapse ofa wide range ofsocial be born at low birth weight, multiplying institutions, a collapse that would have their risk ofdeath or disability; over 140,000 seemed unimaginable to our nation just a

Community Pollclng Conference• 17 generation ago. The consequences include a The single most important crime brisk gun trade and the ongoing AIDS prevention measure to guarantee the safety epidemic. ofour children, as they approach their teen Cops today are policing the debris of years, is employment. Provide meaningful social and institutional collapse. The employment for everyone willing and able collapse includes the failure ofprimary and to work, arid the crime rate in America will secondary schools in many ofthe nation's probably decline. That is why the recent urban centers. It includes the lack of passage ofthe President's economic plan affordable health services and housing. It is was so important for this country and marked by a dearth ofresidential care for criminal justice. people who are severely mentally ill. The Meaningful employment will save ultimate safety net, the family, has also more lives than emergency rooms will. collapsed in many places. More and more Over the years, it has become obvious that American households are headed by single whatever the successes oftraditional women with children, living in poverty. policing, police officers cannot work alone · Historically, there has been a direct in the face ofmassive social dysfunction. correlation between wealth and crime. The Therefore, the police must fonn partnerships less wealth one has, the more likely he or in the community and use all the resources she is to be victimized by crime or convicted ofgovernment, business, and schools to try ofa crime. In 1967, President Johnson's to solve recurring problems. Otherwise, National Crime Control Commission stated police will function only as responders to that "studies ofthe distribution ofcrime incidents, never getting to the causes of rates in cities and ofthe conditions oflife crime and violence. That is why I believe most commonly associated with high crime strongly in the concept ofcommunity rates have been conducted for well over a policing. century in Europe and for many years in the When I served as police United States. These findings have been commissioner in New York City, we remarkably consistent: burglary, robbery, implemented community policing to let and serious assaults occurred in areas neighborhood people help identify and solve characterized by low income, low levels of their own problems. Community policing education and vocational skills, high also gives officers a chance to be more unemployment, and high population "Over the years, it has density." Clearly, that is as much a problem today as it was a quarter ofa century ago. In become obvious that fact, data from the Federal Reserve Bank whatever the successes of and the Internal Revenue Service suggest the traditional policing, police problem could get worse. Their data show officers cannot _work alone in that the top I percent ofthe American theface ofmassive social population has more combined wealth than dysfunction. " the bottom 90 percent. In other words, 1 percent ofAmerica is richer than nearly everyone else combined. Unattended creative, to be independent in their approach differences ofthis magnitude can turn police to police work, and to use their intelligence forces into occupation armies. No police in solving problems. Community policing is officer in America wants his job relegated to a partnership between the police and the that ofborder guard on the frontier between law-abiding people to prevent crime, arrest the rich and the poor.

Community Policing Conference• 18 offenders, and find solutions to repeat What is the drug scene in America problems. today? The latest surveys indicate that about Community policing is still being 11.4 million people used some illegal drugs implemented in New York City and other at least once a month last year. About 1.3 cities throughout the nation. While it may million people used cocaine at least once a be too early to draw firm conclusions, after month last year. Casual drug use is one year ofcommunity policing, New York probably on the decline but may not be City experienced decreases in every major safely behind us. The most recent survey of crime category for the first time in 36 years. young people's attitudes and actions Ifcrime grows, however, there will regarding drug use shows that the decline in be a temptation to revert to the superficial drug use by young people has stopped. The reassurance ofa paramilitary response. The use ofsome drugs, such as marijuana and police will be asked to maintain a repressive LSD, is actually increasing. Moreover, posture and prepare for battle. Ifurban fewer eighth graders in 1992 than in 1991 conditions continue to worsen, pressure may perceived that cocaine or crack use was mount to abandon community policing and harmful. One in four high school seniors, use the police as occupying forces to put one in five 10th graders, and one in seven down disturbances. Sometimes 8th graders reported binge drinking in the overwhelming police numbers are required two weeks before the survey was conducted. to ensure the peace, but more often they are But casual use is the easiest to deal not. An effective community-oriented with; it shows the most immediate results police presence is a deterrent to when you tackle it. What about hard-core neighborhood violence in the first place. drug use? Hard-core cocaine and heroin use Police officers should become permanent, has fluctuated between 2 million and 2.5 highly visible fixtures in the neighborhood, million people over the last few years. But known personally to the people who live or in the last couple ofyears, the number of work there, especially to the young people. hard-core users has probably grown. Most To revert to an "us against them" posture hard-core users evade the traditional surveys will make things worse, for both community used to measure drug use in America. The residents and the police. A police officer National Household Survey on Drug Abuse permanently assigned to a neighborhood is a uses self-reported data from people in better deterrent to unrest than a SWAT team households. Common sense says that a lot waiting in the wings. ofpeople, maybe most drug addicts, are not The ultimate deterrent to crime and in stable households. Other sources, such as violence involves addressing some oftheir the Drug Abuse Warning Network, the Drug underlying causes. Clearly, that is a role Abuse Forecasting Program, our own beyond the police, but at least community fieldwork, and other information sources, policing invites everyone into the process. round out the picture and tell a different Community policing recognizes something story. that "can-do" organizations like police They show significant increases in departments sometimes will not readily the number ofpeople needing emergency admit. It acknowledges that the people most medical treatment for overdoses and other affected by crime may be the best people to problems associated with drug abuse. In help the police attack the problem and find fact, hospital emergencies involving heroin solutions. It is through community policing may be at an all-time high. The price ofa that we can work together to save the lives pure gram ofheroin has been dropping, as ofour children. has the price ofa pure gram ofcocaine.

Community Policing Conference• 19 That shows there is an abundance ofdrugs need to support families, schools, and on the street, and 75 to 80 percent ofdrugs religious institutions. We need to encourage on the street are consumed by the hard-core businesses to invest in our neighborhoods. users. The supply may even be increasing. We must expand the drug court concept. It is time to turn our attention to hard-core We must promote boot c~ps and drug drug users; they fuel the drug market that treatment in the criminal justice system. We seduces new users every day. need to expand outreach programs and As the health care system undergoes treatment research. reform, remember that hard-core drug users Second, we must reduce violence in account for a huge cost. Recent estimates America. We must make sure communities suggest that one out ofevery four dollars in and schools are safe so that people can walk Medicare costs is related to substance abuse. the streets and children can learn without Hard-core drug use causes violent crimes­ fear. We need to increase the certainty of crimes committed by users to finance their punishment for those who commit crimes. life styles and crimes committed by Currently, the risk ofbeing arrested, traffickers in fighting for territory. Such prosecuted, convicted, and incarcerated for a drug use drains money from the economy, crime, particularly a drug crime, is very low. evades taxation, and corrupts families, and We need to devise speedier, more creative political, and civic organizations. punishments. Studies show that increasing This country has an unprecedented the certainty ofpunishment works better level of incarceration, with the bulk ofthe than increasing the severity. We need better inmates coming from disadvantaged gun control legislation, such as the Brady communities. In federal prisons, more than a third ofthe inmates are African-American "As the health care and more than a fourth are Hispanic. What system undergoes we have been doing is not getting the job reform, remember that done. We have to look at other options. However, some options are wrong. One of hard-core drug users those is legalization. accountfor a huge cost. Some suggest that we can reduce, if Recent estimates suggest not eliminate, much ofthe violence and that one out ofevery crime as well as criminal justice system four dollars in Medicare burdens by legalizing some or all drugs. costs is related to Legalization of illegal drugs would be the moral equivalent ofgenocide. Legalization substance abuse." would result in increased drug use principally in the communities and among Bill, and legislation that will prevent the the people who can least afford to lose what selling of assault weapons for civilian use. they have. Third, this Administration will I believe we must first address the promote and support community policing. problem ofhard-core drug use. That Community policing will be a major requires strengthening and revitalizing emphasis ofthe new drug control strategy communities so that people there can live because community policing discourages all meaningful lives filled with hope. We need forms ofcriminal behavior, including drug to provide opportunities in education and trafficking. It helps reclaim the streets for jobs. We need to make sure that everyone is law-abiding citizens. It promotes a full partner in the American dream. We community cohesion. By preventing crime,

Community Pollclng Conference • 20 it reduces the burden ofprosecution ~d 1-1 took the one less traveled by, and that incarceration. has made all the difference." Fourth, we must emphasize American policing is at a fork in the prevention and treatment. Drug education is road. One choice is to take the traditional needed in all schools from kindergarten to road. The other choice is to try a new 12th grade. We must also close the gap approach. The stakes are very high. Let us between treatment need and treatment hope we have enough energy to make availability. positive efforts to win the battle that Finally, we need to pass the confronts us. Ifwe commit ourselves to the President's crime bill. The President challenge ahead ofus, somewhere down the proposes to put up to I 00,000 more police road we will be able to say we took the road officers on the streets, working with less traveled and, indeed, it made all the neighbors as partners against crime under difference. the concept ofcommunity policing. He has The Honorable Janet Reno proposed a program to give college Attorney General of the United States scholarships and police training to as many as 5,000 students who are willing to make a What are we talking about in terms four-year commitment to serve their ofcommunity policing and America? This comniunities as police officers. He has is a nation ofcommunities, of · proposed the creation ofthe Community neighborhoods, ofpeople working together Partnerships Against Crime program, which and caring. But think about what happened will put an additional 5,000 sworn and in this nation in this century. It suddenly nonswom officers to work. He has proposed grew to a great nation with long life to put 25,000 young people to work as expectancy and great, huge cities. People nonswom personnel for local police left neighborhoods, communities, and farms departments, working in crime prevention and came to those cities. A depression and a and other public safety efforts through the war followed. National Service Program. The economic Then people started going from the plan the President signed into law August cities into suburbia. The solidarity ofa I0th will create jobs in depressed urban and community no longer existed for many rural areas around the country and will Americans. They lost the sense ofthe police provide up to 7,000 officers to do officer they knew, the school teacher who community policing in empowerment zones had taught their brother and their mother, and enterprise zones. and the family physician who knew all their There is reason to be optimistic problems. about the future. We can make a difference, With World War II and this nation's and that will be the objective ofthis growth, we saw the proliferation offederal Administration. A poem by Robert Frost agencies. Those agencies too often acted captures the choices we have before us like they knew best and could tell local and today. The poem describes a man who state officials what to do. We now have 34 reaches a fork in the road. The man has to different agencies that touch on drug decide which road to travel. He sees that enforcement in the federal government. We one road has been walked before; it is the have seen the proliferation oftask forces that easier, more familiar road. The other road lost sight ofthe fact that cooperation was looks more difficult and not as frequently most needed on the street and in the traveled. Frost closes the poem with these community, not in some artificial structure. words: "Two roads diverged in a wood, and

Community Pollclng Conference • 21 Because of this proliferation of said, "Here's the program; you manage it," government, both at a state and federal level, without giving them the resources to do the people have come to think, "Well, job. With their backs against the wall, government will solve our problem." If communities have demonstrated the government did not solve a problem, giving creativity and the boldness that made this it more money would certainly solve the nation great. Ofnecessity, we have come problem. But everything got too big. Social back to the people. In developing service agencies transformed from community policing efforts and community groups into large, state umbrella partnerships, we must trust the people and agencies that did not understand their understand that ifthey are released from the people. School teachers who had exercised ties of bureaucracy, they can make a independent judgment on how to teach a difference. class became controlled from the state We must begin with a national capital. strategy. Police agencies in the Department We lost the personal sense. A person ofJustice and related departments have not wlio was in public health 30 years ago told really sat down together to talk about me, "Ms. Reno, I used to go knock on the national crime strategy. One agency is door ofthe people that I was working with. going in one direction, another agency is I'd sit and have a cup ofcoffee at the kitchen going in another, and then half ofone table and talk to that new mother about how agency is going in a different direction. to raise her child and about nutrition and These agencies are supposedly working about infant care. I'm afraid to go there together, but they are all tom apart by turf now." battles, credit-claiming, fragmentation, and A school teacher told me that 30 duplication. years ago she would go to the home and find But even ifwe develop a common out why a child was truant, but she, too, was approach, we will face a shortage ofprison afraid to go there now. Police started doing cells. I come from a state where the average one thing, and teachers were doing time served is only 20 to 30 percent ofthe something else, with the feds going in one sentence. I then come to a federal direction and locals in another. In the government that is imprisoning people on middle ofall this, we often waited for a minimum mandatory sentences for crimes crisis instead ofdeveloping prevention that are far less severe than those for which programs. We would rather spend money people are getting out ofjail in various on foster care than develop family locales throughout this nation. We must preservation programs. We would rather develop a partnership between state and wait and build jails than put money into federal prison officials to make sure we have juvenile justice systems that make sense. enough prison cells to house the truly We would rather have remedial programs in dangerous, the career criminals, and the our community colleges than put our dollars major traffickers for the length oftime to into programs in elementary schools that which the judges are sentencing them. give children a strong basis for learning. We must then develop a partnership There is a new feeling upon this among local, state, and federal law land. As it has begun to run out ofmoney, enforcement and prison systems to develop the federal government has said to the states, alternative programs for persons coming "Here's the program; you manage it," back to the community. We must link law without giving the states the money. The enforcement, prison systems, and alternative states have turned to local communities and sanction programs so that we properly

Community Policing Conference • 22 process the people that police officers arrest. serious offenders. They did not want to talk To do that will require local prosecutors to at first, but finally they started. The work with federal prosecutors to determine governor and a senator listened to them talk what should be charged in state court versus about the need for evening and after-school federal court. programs that would have kept them out of trouble. They wanted programs that would give them self-respect, limits, opportunities, "We must link law and guidance. Ifwe can learn that much enforcement, prison from young people, think what we can learn systems, and alternative by asking communities what they need to sanction programs so get the job done. that we properly process The best care giver, rule giver, police the people that police officer, and social worker is a strong family. We must do whatever we can to support officers arrest." families. Most American families have the basic foundation, ifonly we can reweave the We must then figure out how the fabric ofsociety around them and give them federal government can best help local the opportunity to exercise authority in the communities. Local communities and police best ways possible. agencies understand the needs oftheir Most people, ifwe reach out and communities better than any federal person help them, can be pulled back. There are in Washington, including the Attorney what I call the mean/bads, the bads, the General. They can better assess their needs wanna-bes, and the goods. You can get and resources, ~d they understand what most ofthose wanna-bes back from being works and what does not. bads ifyou quickly give them alternatives In addition to telling local agencies and examples. Therefore, we must free our how to solve their problems, federal officers to deal with people. agencies have been vague about how long Police officers are becoming the federal funding for specific programs would heroes and heroines for communities. They last. But to make a program work, a local are on the cutting edge ofeverything good agency needs a track record ofmore than a that is happening in communities, whether year or two and some expectation that the by reaching out themselves or by escorting a funding will continue. public health nurse on a home visit that That leads to community policing. It could not be made five years ago because does not help for the police chief and the the nurse was afraid. mayor to storm into a neighborhood and say, Police officers can help the school "This is what we're going to do for you." teacher try to find out why a kid is truant. People will look at them blankly and say, Police partnerships can make a difference­ "What do you know about our not in task forces, protocols, or memos of neighborhood? This is the first time you've understanding, but with people talking and been out here in two years." It's amazing working together, based on trust and respect. what citizens can tell you when you sit But we have to develop an approach around a table and talk with them. that takes account of what it is like to grow Last week I went to a juvenile up in America today. The most formative detention facility in Omaha, Nebraska, and years in a person's life are the years from sat around a table with one young woman zero to age three. Fifty percent ofall learned and seven young men who were considered human response is learned in the first year of

Community Policing Conference • 23 life. The concepts ofreward and officer becomes involved and does punishment and conscience are developed in something about it. those years. Thirteen years later, when a We do not have to wait until a child child puts a gun against somebody's head, is in the emergency room with a fracture. what good is punishment ifhe or she does The good police officer c~ see the signs if not understand what punishment means? he or she knows the neighborhood and Law enforcement must help social knows how to intervene in an effective and service agencies, the public health system, caring manner. We can do so much ifwe and others to reach the community in order develop programs after school and in the to help young families get their children off evening. It is heart-warming to see police to a good start. When we see a three-year­ officers give their free time in sports and old child wandering across a housing other programs to get kids off on the right development with nobody following him or foot. her and nobody caring, we must intervene Last month, Congress passed and and ask, "Where are you going? What's President Clinton signed into law a bill that happening?" We must follow through and provides for $150 million in community make a difference. We may be getting that policing grants. I am dedicated to making child offto a new and better start. sure you get those dollars in ways that can Why do we wait? Police officers truly help you. There will be $75 million for traditionally conducted truancy prevention jurisdictions with populations at or above programs to reduce daytime burglaries. If 150,000, and $75 million for those below. police officers, school teachers, and social Grant funds are available only for the workers together started going to the house salaries and fringe benefits ofhired or to try to find out why the child was truant in rehired law enforcement officers over a the first place, then future, more serious three-year period and cannot be used to supplant state or local funds. "Police partnerships can This is to try to get you some new make a difference-not in help. We hope we will be able to fund task forces, protocols, or approximately 2,000 officers to improve the long-term ability oflaw enforcement memos ofunderstanding, agencies to engage in community policing but with people talking and innovative crime prevention. But police and working together, have been asking me, 11 All right, now ifyou based on trust and get this money for community policing, respect." what are you going to do with these people when we arrest them ifyou don't have enough jails, prosecutors, or courts?" crimes could be prevented. Identifying the mean/bads and In the past, some police officers had getting them put away can help pull back the to be dragged into understanding the little wanna-bes and reduce crime. We can importance ofdomestic violence-how the make it work by giving police officers the impact ofdomestic violence is felt from one resources to do the job. generation to the next. The good police Grant application requirements officer understands that the child who sees include a demonstrated public safety need, his father beat his mother is going to come including the need for more law to accept violence as a way oflife. That enforcement officers. Assessment ofneed

Community Policing Conference • 24 will be based on both public safety aqd show what communities can do. I have a economic factors. The community policing dream that someday a community can come strategy will require preparation ofa three­ to one desk in Washington and gain access year plan for community policing that to the whole range of relevant government emphasizes community involvement and programs. The community can say, "Look, interagency cooperation. The plan should here are our needs and resources. What can include provision for continuing the you do for us?" initiative and retaining the positions with Finally, police officers and police program funds at the end ofthe grant. Other chiefs have also been on the cutting edge of provisions apply. one great controversy. They represent the Applications will be considered in feelings ofmost American people-that we three rounds. The first deadline is October must pass the Brady Bill and develop a ban 14, 1993. Awards are expected to be on assault weapons that have no use.for announced in November and December sporting purposes. People will listen if 1993. police speak out and say, "Look, do you This is just a very small first step. know what this assault weapon is like? Do The President has announced plans for a you know it has no purpose whatsoever crime bill that will provide for funds to put except to kill another human being? Why in up to 50,000 police officers on our streets. the world do we want it on our streets?" How are we going to afford this? I do not I want to create a true partnership. like the federal government to come in and Back in Miami, my home phone number say, "We've authorized 50,000 officers for was listed, and I returned all my phone calls. you." And you ask, "Where are the 50,000 I tried to see every officer, including the officers?" And the answer is, "Oh, we didn't officers who wanted to fuss at me because I appropriate the money." I am dedicated to had not filed the charge they thought should making authorizations and appropriations be filed. In Washington, my number is match. (202) 514-2001. Obviously, if you have a Some police chiefs have expressed problem that can be resolved otherwise, try reservations about the police corps. I would to do so. But if it is a problem that goes to like to sit down and talk with you. I do not the heart ofthe partnership we are trying to know whether we can work anything out, develop, ifyou have ideas and suggestions, but I want to address the problems so we please call me. I am bound and determined know exactly where we stand. to do everything I can to make the There will be other provisions. Department ofJustice a true partner with Empowerment zones and enterprise you every step ofthe way. communities will provide an opportunity to

Community Policing Conference • 25 Street Level Community Policing

mentioned at community meetings, none are Moderator: George A. Rodriguez, as important and basic as those dealing with President, Hispanic American Police people's safety. Any steps toward Command Officers Association, Los addressing this must involve the community. Angeles, California Dr. Joseph Ryan conducts research Panelists: Joseph Ryan, Visiting on defining community policing. The Fellow, National Institute ofJustice, U.S. definition ofcommunity policing varies DepartmentofJusffce among police departments, communities, and individuals. Dr. Ryan stated, Michael Buerger, Visiting Fellow, "Community policing cannot be precisely National Institute ofJustice, U.S. defined, but you know what it is when you DepartmentofJusffce see it." Community policing involves strategies tailored by police and Stephen D. Mastrofski, Visiting Fellow, management to meet different community National Institute ofJustice, U.S. needs. Dr. Ryan conducted surveys in DepartmentofJusffce various cities ofpolice officers' attitudes George Rodriguez said he first about community policing. The NB-funded heard the term community relations 29 years study included Philadelphia, Pennsylvania; ago, as a local officer in California. Back New Haven, Connecticut; Portland, Oregon; then, officers had the attitude that their job and San Diego, California-all cities that are was to get people into jail, not to try to keep engaged in community policing. After them out. The move to use community compiling profiles ofthese cities and their relations in policing has fluctuated since reasons for implementing community then, and it reemerged in recent years in the policing, Dr. Ryan concluded that Portland form ofcommunity policing. But the presented the best prospect for success in its attitudes ofofficers, in general, have not community policing efforts. He highlighted changed. They offer the same criticism of several factors contributing to this community policing and the role ofofficers conclusion. as they did 29 years ago. But once people Portland is the only city that was not understand the concept ofcommunity considered ethnically mixed (85 percent policing and experience how it can benefit white) and the only city that did not have a people, all levels ofcommunity and particularly sensational crime incident that government will encourage and support it. precipitated initiation ofcommunity Community policing is the key to policing. Precipitating incidents in the other addressing many crime-related problems cities were the MOVE incident in that exist in American communities. Mr. Philadelphia, the shooting ofa Yale student Rodriguez noted that law enforcement is a in New Haven, and a police shooting in San dynamic arena He cited, in particular, Diego. Portland also received a grant from community disunity and its role in crime. the Eisenhower Foundation for police and As an example, Los Angeles, where 45 city officials to travel to Japan and other percent ofthe population is Hispanic, U.S. cities to study policing concepts and experiences third generation Hispanic gangs practices. Community policing was also at war with first generation ones. While recognized by the city council as the official there are myriad problems that are government response to crime problems.

Community Policing Conference • 27 The Portland police departm~nt arrest, too quickly releases criminals back to established practices and policies that the community. ensured greater success in community The officers could broadly define policing. All officers are engaged in what working with the community meant but community policing, and duties are assigned were unsure ofits limits. In some in such a way that there is continuity ofkey departments, there are strict guidelines for personnel involved in community policing. what officers may and may not do with A community policing support division was civilians. Officers were concerned about also established to help officers solve knowing what degree ofinvolvement would problems as they arise. A most important no longer be appropriate and about the factor is that there is documentation ofeach possibility ofcorruption. With regard to incident handled, the actions taken, and the working with other government agencies, results ofthose actions. officers generally agreed that this was The overall study involved 60 needed, but they were skeptical that turf interviews ofofficers from the four issues among agencies could easily be mentioned sites and two additional sites that overcome. were not to be identified. The surveys The fact that the officers interviewed involved open-ended questions and were not had difficulty identifying goals was quantified because the responses were never considered by Dr. Ryan to be an identical. The interviews made five basic impediment to the development and inquiries: implementation ofcommunity policing. If 1. What are the perceived goals of the police cannot clearly identify their goals, law enforcement? the community also will have difficulty 2. What are the desirable goals of doing so. Neither would be able to develop law enforcement? better strategies for policing and community 3. What are attitudes about working life. Furthermore, if.goals are not identified, with the community? performance measures cannot be developed. 4. What are attitudes about working Dr. Ryan emphasized the need for more with government agencies? training on the role ofthe community and 5. What are the goals oflaw government agencies and for better training enforcement in reality? ofcommunity policing officers. Fifty-nine ofthe 60 officers Dr. Stephen Mastrofski has · interviewed did not have ideas about the conducted research on a wide range of goals oflaw enforcement. When asked police-related topics, the most recent of about their success as officers, the majority which is an NIJ-funded observational study had no set idea ofwhether or not they were ofpatrol officers engaged in community successful. Only the 16 officers involved in policing. His study was conducted in community policing had concrete responses Richmond, Virginia, where community for gauging their success. Most ofthe policing is in its third year ofa five-year officers agreed that the desirable goals of implementation plan. Dr. Mastrofski law enforcement are to prevent crime, emphasized that, rather than a program, protect life and property, and apprehend community policing in Richmond was based offenders. The officers recognized that on a philosophy that focused on police­ these goals cannot be met without the community partnerships and "creative cooperation ofthe community. They voiced failure." Features of.Richmond's frustration about their perception that the community policing include decentralized criminal justice system, after the point of command, coordinated government services,

Community Policing Conference • 28 permanent patrol beats, special proactive to do what they were trained to do. Officers units, and numerous community outreach who are overzealous with their authority, programs. what Dr. Mastrofski refers to as the Wyatt Narrative and coded data were Earp Syndrome, also find it difficult to work collected through 1,200 hours ofobservation within the framework of ~ommunity covering 125 ride-alongs with 120 officers, policing. Officers also expressed a 1,100 police-citizen encounters involving discomfort or concern with broadened 1,600 citizens, and 5,600 other police boundaries for interaction with citizens, activities. This study was considered very fearing that favoritism and corruption would successful. be more likely. Management issues Officers defined community policing included controlling the demand of 911 as improving police-community relations, calls, training ofoffi~ers, and supervisory developing partnerships for problem support. The enhanced needs for equipment, solving, and "doing what good cops have facilities, and other adequate support for always done." Many officers did not community policing were also emphasized. consider community policing as something Dr. Mastrofski developed profiles new, but rather what police do when they are ofofficers based on their attitudes toward doing well what they ought to do. A little community policing. Proponents of more than half had positive or very positive community policing generally enjoyed their responses when asked their opinion about work, were friendly and talkative, were community policing, and 26 percent had committed to serving and protecting their negative or very negative responses. Those beat, and took pride in small with negative responses felt skeptical rather accomplishments. Those opposed to than opposed to it. They felt that community policing were generally unhappy community policing would not solve real with their jobs, avoided contact with the problems, that those who should support it public, had negative attitudes about their would not, and that the police department in beats, were doubtful oftheir effectiveness, particular was not doing enough to support and were concerned about favoritism and it. Those with favorable responses felt that corruption. police need all the help they can get. One Dr. Michael Buerger, a former officer's response was, "If those we're police officer and currently a professor at the working to help won't help us, who will?" University ofWisconsin, has edited a In the course ofthree years of casebook on problem-oriented policing and community policing, the officers had is the author ofseveral articles on identified three particular areas ofchallenge: community policing. Dr. Buerger began relationships with the community, his presentation by stating that "the rhetoric redefining the officers' roles, and overpromises what we can deliver at the management issues. Factors that challenged moment." He pointed out that he was not developing community relationships concerned with community policing, but included community apathy, community with policing in general. "As long as it resentment ofthe police, police resentment needs the adjective community," he said, "it ofthe community, and citizens' fear of will be considered different from policing." reprisal for cooperation with police. When The basic problem with community discussing their roles as officers, some felt policing, he contended, is that it that community policing was akin to "romanticizes something that we can't "babysitting," and, what is more, they felt it deliver." Although some cities claim to was not working. These officers just wanted have developed philosophies, community

Community Policing Conference • 29 policing remains overwhelmingly a lot of Community policing is not a fundamental programs that merely focus on and involve change from the police professionalization the community. An underlying philosophy movement, as some scholars have claimed. upon which attitudes, behavior, programs, Ifcommunity policing is to become a and policy are based must exist for reality, it will require completion ofthe community policing to be a reality. reform agenda ofthe professionalization While there is much work being movement. While it is difficult to do, all done to advance community policing, officers should be exposed to the same elements are being ignored that are precisely milieu as that offered to the "best and what must be addressed. There are many brightest." Usually, the best and brightest skeptics among police as well as the officers are taken offregular patrol duty and community. Many cynics among police assigned to community policing. The less­ have seen reform movements come and go, than-best must then handle day-to-day, more and they are merely waiting for the "fad" of common tasks and assignments. This, he community policing to pass. Those that contended, can be counterproductive, oppose community policing can be powerful because these are precisely the officers who enough to derail the best ofefforts. The comprise the majority ofa police department importance ofexcellent supervision to and most need to be exposed to better challenge resistance cannot be training. They are also the officers left overemphasized. Those who are responsible for training, and they have the unsupportive cannot be ignored but must be greatest opportunity for setting examples converted into supporters. This connects to and influencing attitudes that are counter to another point that is often left unaddressed: those fostered by community policing. quantifying successes and translating this A primary element in community into information that skeptics can accept and policing is establishing a relationship adopt. between police and the community. It is Successes that are attributed to essential, in helping to change unproductive community policing are primarily the result attitudes, that police be more in touch with ofefforts ofa few specialized officers. the community so both can see one another These are not department-wide or as human beings. But an understanding of representative. While this may be good for what the partners in the relationship want public perception ofthe police department, it from one another is often ignored at the has deleterious consequences for internal outset. While partnership implies that both relations. These select officers often receive partners do something, police have not often special recognition that generates resentment determined what they want the community among other officers. Highlighting to do or whether the community has the successes that are not representative ofthe capacity to do it. However, there are some department overall may be risky. Ifthe common themes that emerge with regard to entire department is not invested in police expectations. Community members community policing at a philosophical level, can a single incident, like the rio_ts following the • Act as eyes and ears for the police Rodney King verdict, could damage or • Intervene on behalf ofthe police dissolve the image presented to the public. • Provide monetary assistance to the Dr. Buerger maintained that the police, and image ofpolice must be changed before the • Make a statement against crime. relationship between police and the Dr. Buerger contended that a list of community can really be improved. community responsibilities like this is not

Community Policing Conference • 30 progressive but rather a statement ofwhat neighborhoods, residents are not inclined to the community already does. It may, make any direct statements against crime indeed, be more than the community is when it could well mean endangering their willing to do or ought to do. The 911 calls lives. reflect the community acting as eyes and Dr. Buerger acknowledged that he ears for the police. Police encourage had presented a skeptical viewpoint ofthe symbolic statements against crime, such as community policing movement, but said he reporting strangers, although in supported it as a worthwhile outcome. He neighborhoods where crime is rampant, it is cautioned that police departments must not well known that most victims and offenders overlook key factors that allow community are from the same community and are not policing to work. strangers to one another. In these

Community Policing Conference • 31 Community Policing Evaluations

problem-solving. The police department has Moderator. Joseph M. Wright, also adopted CAPS as a philosophy. Executive Director, National As part ofthe initial implementation Organization of Black Law Enforcement in the five districts, the department Executives, Washington, D. C. organized a community advisory board to Panelists: Dennis P. Rosenbaum, develop action plans and set priorities for Director, Center for Research in Law implementing CAPS. It also conducted a and Justice, University ofIllinois at beat profile to identify problems and Chicago available resources in the specific beats. Using data from the profile, the department Roger Przybylski, Coordinator of worked with the community advisory board Research, Chicago, Illinois, Police to design responses to the problem. Mr. Department Przybylski described how the department used computerized crime analyses _to Antony Pate, Director of Research, produce a map ofcrime hot-spots so that a Police Foundation, Washington, D. C. beat officer has timely infonnation about events, crimes, etc., that occur in his or her Susan Sadd, Project Director, Vera beat. In conjunction with police services, Institute ofJustice, New York, New York CAPS also involves prioritized delivery of other city services to the five districts and Randolph M. Grine, Senior Research cross-training ofthe various city agencies: Associate, Vera Institute ofJustice, New CAPS involv_es both an internal and York, New York external evaluation. The department is During this session, panelists conducting a process evaluation ofthe discussed current efforts to evaluate implementation ofCAPS, while an outside community policjng and innovative consortium ofuniversities, including neighborhood-oriented policing in various DePaul, Northwestern, Chicago, and Loyola, cities across the country. The evaluations, is evaluating the impact ofCAPS. Dr. which include both process and impact Rosenbaum explained that the outside evaluations, are in varying states of evaluation includes both process and impact completion. evaluation components but should also be Roger Przybylski and Dr. Dennis considered a fonnative evaluation because Rosenbaum focused on the evaluation of there is a feedback component. Chicago's Alternative Policing Strategy According to Dr. Rosenbaum, the (CAPS). Mr. Przybylski opened the panel process evaluation involves observations of with background infonnation on CAPS and meetings in the police department, its features. Beginning in April 1993, community advisory board meetings, Chicago implemented a problem-solving mayor's meetings, strategic planning approach known as CAPS in five ofits 25 meetings, and implementation meetings. districts, with plans to implement the Researchers meet with a variety ofpersons strategy citywide over the next year. involved in CAPS, such as field operations According to Mr. Przybylski, the sergeants, community leaders, and union foundation ofCAPS is crime control, law leaders. In tenns ofquantitative data, the enforcement, rapid response, and proactive evaluators surveyed 1,800 police officers in the five experimental districts and five

Community Policing Conference • 33 control districts on measures of satisfaction. According to Dr. Sadd, in those They are also evaluating training and the areas where people thought the INOP training curricula. Furthermore, teams of program had effects on crime, the fear of researchers will conduct block observations, crime was down. She reported that most noting the physical conditions (land uses, sites felt their relations with the community graffiti, trash, schools, churches, recreation had improved. In particular, many felt the centers, etc.) ofmore than 2,000 city blocks. level ofcommunity involvement and The evaluators are also surveying more than participation had improved. 2,500 residents in the experimental and Dr. Grine described the difference control districts. Dr. Rosenbaum noted between the police implementation ofINOP that, in order for the information and results and community polic~g implementation. ofthe evaluation to be useful, it has to be He said the greatest difficulty for police in usable for people working in the program. implementing INOP was that it created a Therefore, everyone must be involved in the new role for the patrol officer. The process. He stated that results ofthe evaluation showed little police "buy-in" to evaluation effort are preliminary, and data the INOP strategy. Many officers said they will be forthcoming. felt it wasn't real policing. Some officers Dr. Susan Sadd and Dr. Randolph and residents used terms for INOP that Grine discussed the NIJ evaluation ofthe included: Innovative Neighborhood-Oriented Policing • Social work policing (INOP) program. Under the INOP program, • Smile and wave policy eight jurisdictions were funded by the • N.O.P.-not our problem or nobody Bureau ofJustice Assistance to deal with the on patrol problems ofdrugs and crime using • Management du jour innovative, community-oriented policing Part ofthe problem, according to Dr. techniques. Dr. Sadd reported on some of Grine, was that there was a lack oftraining the perceived effects ofthe INOP program for the program. As a result, a common on drug demand reduction, drugs, crime, attitude formed that community policing fear, and community involvement. meant better community relations rather than Dr. Sadd stated that the effects of better policing. Further, the INOP program the INOP program were limited. In part, called for the development ofa special unit this was due to problems with implementa­ to carry out the strategy. This special unit tion and timing. The evaluation provided status was a problem because it was viewed only a snapshot ofthe impact and did not by others in the department as "non-police" include a long-term evaluation ofthe effects. work. The unit was not responsible for In terms ofthe effects on drug crime, she taking calls and therefore lost its legitimacy. indicated that the INOP program had Police officers indicated the unit was soft on achieved geographic displacement at best. crime, and many took offense at the fact that In fact, the adjustments may have been management made sµch an effort to involve temporal, because the drug dealers seemed residents in the program, but not other police to adjust their schedules so they were there officers. Officers also indicated they felt the when police weren't. However, Dr. Sadd INOP program started too quickly and said some ofthe results from Portland, strained department resources. Oregon; Tempe, Arizona; and Prince There were similar complaints from George's County, Maryland, have been the community about INOP, with the most favorable. frequent being that residents would not or did not want to get involved. They indicated

Community Policing Conference • 34

------that the police made little effort to include or York City Police Department began the inform the community. Resident knowledge process in 1984 in Brooklyn's 72d precinct. about the INOP program was low except With 162 personnel assigned to the 72nd among those in regular contact with the precinct, the department planned a community policing officers. Dr. Grine reorganization to full staffing that would explained that some ofthe lack of require a 26 percent increase in personnel. community involvement could have been The program was designed to develop an caused by fear ofretaliation for operational system to encourage community involvement, fear ofcrime in general, a policing, including development ofan feeling that the increased law enforcement information system to support community efforts were a passing strategy, and poor policing efforts, development ofa system to relationships between the police and share 911 workload, work with other residents. department units to develop a Other problems were public and comprehensive community policing model, police apathy, rotating beat officers, lack of and development and implementation ofa outreach to the community, and intragroup training program to support the new model. conflicts (e.g., community organizations had Among the new processes conflicting interests with some residents). implemented were staff meetings, precinct Dr. Grine concluded that to have more team meetings involving commanders and effective results, we must bring both two citizens, crime mapping, and alternative residents and police officers into a problem­ responses to low priority calls. Mr. Pate solving mode. explained that one ofthe primary goals of Antony Pate spoke on a process the model precinct was to decrease evaluation ofthe model precinct effort in specialization. In terms ofthe general New York City: The program was effects, Mr. Pate reported there was a large organizationally structured to facilitate a drop in the number ofcitizen complaints. transition to community policing. The New

Community Policing Conference • 35 Street Level Drug Enforcement

forfeiture funds could be used to pay for Moderator: Steven R. Hams, Chiefof officer overtime. The partnership approach Police, Redmond Police Department, would be based upon information from Redmond, Washington rental managers, business leaders, and Panelists: David Hayeslip, Program community groups. Manager, Evaluation Division, National A mix oftraditional surveillance and Institute ofJustice, U.S. Department of buys supported large-scale drug raids, Justice combined with community policing, to maintain law enforcement presence. These George E. Capowich, Criminal Justice techniques were used in geographically Consultant, Alexandria, Virginia distinct residential areas in the county. Each local precinct devised its own strategy for Deborah Lamm Weisel, Senior community police maintenance. For Research Associate, Police Executive example, a precinct might use block watch, Research Forum, Raleigh, North foot patrol, or police athletic league (PAL) Carolina programs. Dr. David Hayeslip reported on the Goals. The goals ofthe project Baltimore County, Maryland, Community included good arrests in target areas ( drug Oriented Drug Enforcement (CODE) crime related), displacement ofdrug project. Baltimore County has a suburban markets, and improvement ofquality oflife environment with an area of600 square in the area (less fear ofcrime). Ninety miles, 700,000 population, and no percent ofarrests resulted in conviction; 50 incorporated cities. The police department percent ofarrestees served time. Repeat includes 1,500 to 1,600 sworn officers, who offenders received sentences as long as 25 respond to 400,000 calls for service each years, and reported crime was down. year. There are 80,000 Part I and Part II Although drug markets moved, and new crimes reported annually, and 1,500 tips are dealers came in, there was increased received annually on the drug hot line. satisfaction with police, and residents felt Baltimore County has very little street safer. dealing ofdrugs. Most drug dealing occurs Traditional Enforcement. Over time, in apartments, especially those under the the program moved from an emphasis on federal Section 8 program for low-income community policing to a more traditional residents. vice-narcotics approach to law enforcement. Baltimore County has a long history This occurred in both the administration and ofcommunity policing. In each precinct, tactics. In Phase I, there was central there is a special Drug Enforcement Unit command support for community policing. headed by a corporal. In 1990, low-level The central narcotics captain favored drug trafficking became a priority. Because decentralization to the precinct level, and the ofstaffing shortages, narcotics and vice precinct command was supportive of could not handle this level ofdealing. They community policing. The decentralization resulted in planning by lower-level officers were concerned with dealers at the middle ' and higher levels. The narcotics captain including the units assigned to the program. believed that a partnership approach could Brainstorming sessions with community be directed at low-level dealing, and asset representatives were held before operational

Community Policing Conference • 37 planning occurred. The emphasis was on George Capowich described sites problem solving. funded in 1988 to implement problem­ Phase II began when the narcotics solving policing in Tulsa, Oklahoma, and captain left. The new captain was not as San Diego, California. Both departments supportive ofcommunity policing. At the were committed to department-wide same time, the precinct commands were implementation rather than using special faced by two crises: an internal affairs units. investigation and an increase in crime. As a At each site, officers received result, control ofthe program shifted back to training in problem solving on topics such as central command and the central strike team. gathering information about a neighborhood. Tactical Changes. Traditional The evaluation used problems as the tactics in Phase I, such as raids on dealers, units ofstudy. Both prospective and were followed by post-raid surveys of the historical case study approaches were used community to explain the raids and ask for because both sites implemented the program future help in organizing the community as before the evaluators began data collection. part ofthe maintenance policing. During The evaluation followed 20 cases to Phase II, only one precinct carried out a determine what officers do to solve post-raid survey. Only sporadic efforts were problems. It focused on both the process of made to implement community policing problem solving and outcomes (or effects). thereafter. In San Diego, police focused on The success ofcommunity policing narcotics use and sales. In Tulsa, the police varies by the type ofcommunity. Ifthe focused on public housing crime at five community is stable, traditional policing is sites. The evaluation found that the longer difficult (because police surveillance is the police used problem solving, the more easily identified) and community policing is likely they were to apply it to different types relatively easy to implement. In a more ofcases. transient community, however, traditional The Tulsa project was not successful policing is easier to implement than due to political involvement. For example, community policing. Police are not known the city council opposed "highbrow" police by transients, and transients are not methods. A concern in the approaching interested in helping police or improving the mayoral election was that the project might community. result in lower arrest statistics. The The shift back to central command Fraternal Order ofPolice also opposed the diminished the precinct's "ownership" ofthe project, since it was established by police program. This, in tum, reduced interest in managers. The Tulsa project focused on community policing and working with the both crime and factors associated with community. crime, such as unkept property. The average Both central and precinct law time given to police to work on a problem enforcement support is needed to ensure was 73 days. success. The program should be operated in In San Diego, the police focused on decentralized fashion, and beat officers crime only. Of41 cases, only two were not should be encouraged to involve the drug crime cases. Community action of community. Overtime funds should be some sort was initiated in 36 cases. In available for brainstorming before planning. addition to traditional criminal law Community characteristics must be taken enforcement methods, the police also sought into account. assistance in 14 cases from regulatory agencies. For example, they referred one

Community Policing Conference • 38 case to the animal welfare authorities to deal investigation/follow~up ( e.g., electronic with a dog that protected a crack house. surveillance, pen registers), physical They also used child welfare laws and approaches (e.g., installation ofspeed building code enforcement. Tulsa police did bumps, changing traffic patterns), and not make similar use ofalternative enforcement oflocal ordinances ( e.g., enforcement methods. loitering, bar licensing). Training for officers focused on three The literature review was followed elements: identify the problem, define its by a national survey ofpolice agencies. The boundaries, and create a response. In San patrol divisions were surveyed separately Diego, problems were narrowly defined, but from the investigative force. The most a wide set ofresponses resulted. In Tulsa, common activity responses were plain-view traditional law enforcement led to a broader arrests, searches, and dog searches. Less­ definition ofthe problem. used investigative techniques included San Diego showed mixed results. wholesale drug investigations, deciphering The ten successful problem-solving cases coded information, clone beepers (matched were narrowly defined, with specific targets, with beepers used by dealers), cargo such as cleaning up property. Less success inspection, monitoring ofchemical was seen when the problem was broadly precursors, and currency report monitoring. defined (for example, all street robberies in The most common uniformed officer an area), or when the area was too broadly techniques included crime analysis, specified. Calls for service in surrounding developing informants, and ancillary areas (within two-tenths ofa mile) were techniques ( e.g., boarding up abandoned unaffected, suggesting no crime houses, high intensity lighting, changing pay displacement to nearby neighborhoods. phone numbers, and enforcing Calls for service in the target areas did go loitering/disorderly conduct laws). down. Community policing methods also included Deborah Lamm Weisel reported on citizen ride-alongs, referrals to other the NU-funded evaluation ofemerging drug agencies, abandoned auto cleanup, school enforcement techniques. As a result of prevention programs, and drug-free zones. broad definitions ofenforcement, many of Some areas used innovative approaches, the tactics seen were the result ofuniformed such as drug-sniffing pigs, notices on off­ officer creativity. The term tactic referred to ramps of "drug checkpoint ahead," charging a discrete approach to a problem by an drug stamp tax violations, and sending officer. postcards to drivers ofcars seen in high drug The study began with a review ofthe sale areas. literature. This identified 150 different The panelists commented, in enforcement tactics in categories that conclusion, that community policing seeks included observation/arrest, to establish police-citizen partnerships, undercover/surveillance, technology increases citizen access to police services, observation (e.g., night vision goggles), and promotes alternative methods.

Community Policing Conference • 39 International _Panel on Community Policing

ofalcohol. While crime figures indicate that Moderator: Richard H. Ward, the county streets are inherently safe for Associate Chancellor, University of ordinary people, the citizens feel a real fear Illinois at Chicago ofcrime. Panelists: Ron Hadfield, Chief Chief Constable Hadfield said that Constable, West Midlands Police, policing in Britain depends upon the public England allowing itself to be policed. The public must be informed ofpolicing issues and Abdelkarim A. Darwish, Major, Egypt reassured ofthe police's ability to influence National Police Academy, Egypt what happens around them. The strategy and the tactics employed by the police are Julian Fantino, Chief, London, Ontario, formulated not only within the rule of law, Police Force, Canada but within the bounds ofpublic acceptability. Policing is essentially about The West Midlands Police Force is people's expectations and perceptions. The one of the largest forces outside of London people's needs can be expressed quite simply and is situated in the industrial heartland of as England. It comprises the major cities of • More uniformed police officers Birmingham and Coventry and five other patrolling the streets, large urban districts. The county is diverse, • Reduction ofcrime, and dynamic, and densely populated, with each • Reduction ofthe fear ofcrime in district having its own unique characteristics order to improve the quality of life. and each generating different demands upon Policing occiµ-s at several levels. the police. The unemployment rate over the While we may see each level as independent past decade has remained near the national and substantially different, there is average. However, areas within the inner coordination and interaction within and cities have an unemployment rate ofalmost between these levels: 25 percent. Especially hard hit is the • National and international. Many younger age group. Poor housing, a high more crimes are being attacked from proportion ofsingle parent families, a a national and international level. concentration ofminority ethnic groups, and • Regional and interdepartmental. In a social service system that is frequently almost all metropolitan areas, some overwhelmed all serve to create a feeling of form of interagency task force has futility and generate social tensions that been arranged. affect the police. • Local. Local police are probably Chief Constable Ron Hadfield the most responsive to the public. explained that crime continues to rise Local police have to respond to steadily in all parts ofthe West Midlands, diverse environments, from inner but serious crime involving grave injury, city to rural. They are closer to the death, or the use offirearms has remained public and therefore can provide the low and relatively stable. A majority of impetus for community policing. assaults involve juveniles or young adults, Yet, local police cannot ignore the known to each other; these occur late in the other two levels ofpolicing. evening and probably involve consumption The public wants to see uniformed officers in order to be reassured that they are

Community Policing Conference • 41 controlling crime, reducing the incidence of The police must not forget deterrence and crime, and thereby reducing the public's fear detection as well. ofcrime. The continuing rise in crime, Using tt?-e community policing label in~reasing demands for police response, and helps people notice. There are many a growing administrative burden, combined community policing models around; some with shrinking or stagnating resources, make have been in existence for several years. this goal nearly overwhelming. The public New programs should choose pieces from wants the police to preserve the peace by several successful models, to be tested in keeping stability in the community, one area and possibly spread around the city. preventing and detecting crime, and Any community policing effort enforcing regulations. However, demand is should involve these principles: overburdening the police. They are • Consult. Identify others who know becoming the social service agency oflast the topic, problem, area, etc. resort. To better focus their efforts, they • Prioritize. Don't take on more than should address the population that commits you can deliver. Focus and target. most ofthe crime. • Involve. Involve as many ofthe Many, ifnot all, traditional social stakeholders as possible. structures have changed: the family, • Change. Be prepared to change the religion, education, neighborhoods and way you are doing things. communities, media and communication • Economize resources. Use available linkages, and technology. People have resources from a variety ofsources. different aspirations and expectations. • ·Set goals. Keep focused and avoid Communities don't necessarily want the deviation. same type or amount ofpolice service. Major Abdelkarim Darwish began Therefore, one policing model doesn't his presentation by stating that Egypt covers necessarily fit all communities. some 380,000 square miles with a Police must remember they cannot population of 55 million. Egypt has existed go it alone; they must involve other for over 7,000 years and has had a central agencies. The police must be responsive government for 5,000 years. There has been and service-oriented. The police must not some form ofpolice for over 3,000 years. deviate or promise what cannot be delivered. As a result ofthe 1952 revolution, the police The police must have status; they must be administration was placed under the supported by the administration and Ministry oflnterior. There are 86 local government. The police must have governments with police agencies. continuity, focus, and target; they must take Local police departments have a small measures, not try to solve all the history ofworking with citizens and problems. Officers should not become businesses in their assigned areas. Local social workers. Administrators and departments have a large number ofpolice supervisors must ensure that officers don't stations and substations. The community spend more time consulting than doing. relations officers assigned to the police Enforcement still applies. station coordinate and remain in contact The police should concentrate on with various elements of the community. prevention and getting the public to become Support groups help with selected policing more involved in self-help initiatives. They activities, such as traffic control, public must focus on juveniles and form special health, juvenile delinquency, and juvenile bureaus. This emphasis should community conflicts. This relieves the include schools, families, and communities. officer to work on more serious crimes. The

Community Policing Conference • 42 police also work with private security forces philosophy ofcommunity involvement. in public housing. Newly arrived from Toronto, he spent most There are many crime prevention ofhis early months championing the need to associations formed by police stations across eradicate the drug and crack cocaine the country. Also, the police help members problem. Chief Fantino considers the drug ofthe prisoners' associations to work with problem to be epidemic. Although the families ofthose in prison. The police help media called the chiefs efforts the association keep the family together, find scaremongering, his connection ofthe work, establish day-care cent~rs, etc. problem to health issues caused the public to There are four police support the chiefs enforcement effort. colleges/academies in the country. The Through such programs as "Safety, subjects taught at these colleges include Security and Quality ofLife" (SSQL), engineering and social services. All police citizens help the police frame the issue and managers and junior and senior ranks attend identify solutions. Now, the citizens are these colleges. Those who are in post­ championing the police budget, which they graduate studies receive education on police see as their own budget. They make their technical subjects. The police academy views known, thereby helping the teaches such community policing subjects as department to increase its resources. The how to work well within the community, people are very supportive ofthe police and identify and solve community problems, and the SSQL program, although the city fathers organize a community. are concerned about the cost ofthis support. There is a police research center that The London Urban Alliance is a race supports all policing in Egypt. Its mission is relations organization. It is a privately to upgrade and apply criminal justice funded, nonpartisan effort that allows two­ techniques to policing. These activities way communications between various include international, national, and local community factions, the community, and the policing efforts. In summary, Major police. The Urban Alliance can provide a Darwish pointed out the need to increase the neutral ground. It has formed and assisted in problem solving capabilities and youth programs, reduction in the use of accountability ofpolice officers. police force, conflict resolution, etc. Chief Julian Fantino gave an The police use a community survey overview ofcommunity policing in Canada. to identify issues and concerns. It includes London, Ontario, is home to 310,000 people questions on youth and community ofdiverse national backgrounds. The police involvement. The police must listen to the department has 594 personnel. The police youth, who are much concerned about department has made strides to capture and violence and drugs. use people power. Because the department Because most police departments try realizes the crucial role the community to be nonpolitical, rank-and-file police plays, the police have brought the officers have seldom been involved in community into policy making, policy critical public issues. However, community review, and the rehabilitation process. The policing is changing that. Officers now department has been working to foster champion those members ofthe population partnerships with the community to improve who have been left behind and provide the quality oflife. meaningful leadership. Chief Fantino subscribes to the

Community Policing Conference • 43 Use of Civil Remedies as Alternative Sanctions

were outraged because ofa shooting by a Moderator: David W Brown, Chiefof mentally ill person. Before proceeding with Police, Tempe, Arizona civil remedies, however, the police met with Panelists: Peter Finn, Research representatives ofthe American Civil Analyst, Abt Associates, Cambridge, Liberties Union, National Alliance for the Massachusetts Mentally Ill, and others to discuss acceptable solutions. Similarly,.in Kansas City, where Albert J. Toczydlowski, Assistant District crack houses were to be targeted, police first Attorney, Philadelphia, Pennsylvania, met with an association ofproperty owners. District Attorney's Office Continued involvement with citizens and community-based organizations is also William Johnston, Deputy Super­ important. For example, a representative of intendent, Bureau of Investigative the Manhattan District Attorney's narcotics Service, Boston, Massachusetts, Police eviction program regularly attends Department community meetings. In Duluth; a Chief David Brown pointed out that community-based domestic violence the use ofcivil remedies is not automatically intervention program identifies violators of considered a part ofcommunity policing, yet civil protection orders and regularly reviews community policing and civil remedies are police arrest reports. linked for several reasons. First, police Mr. Finn further illustrated the agencies often turn to both approaches importance ofcommunity involvement in because offrustration. They realize criminal civil remedies by discussing the Kansas City sanctions are not solving all crime problems. approach. In 1985, the Missouri legislature Second, both approaches bring in other expanded the civil code to include as agencies. Third, both involve problem nuisances private houses where drugs are solving and considering the causes of sold. In February 1989, a high school problems, not just outcomes. Finally, both student was killed by another student who community policing and the use ofcivil was reportedly high on crack. The Ad Hoc remedies involve empowering police Group Against Crime (Ad Hoc) launched a employees and citizens. campaign against crack houses with a Peter Finn discussed research he caravan that involved cars, coffins, and a conducted for NIJ on the use ofcivil police escort. Ad Hoc used bullhorns to remedies in eight jurisdictions. The study publicize its crime hot-line number and to included site visits and telephone interviews express intolerance for drugs. Subsequently, with police, prosecutors, and others in Ad Hoc sponsored rallies in front ofspecific Duluth, Boston, Los Angeles, Phoenix, crack houses and obtained media coverage. Manhattan, New York State, Kansas City, At the same time, Ad Hoc formed a and San Diego. Although approaches partnership with police and prosecutors to differed among the sites, all ofthe pursue civil remedies against crack dealing. jurisdictions were searching for long-term Both Ad Hoc and the police identify houses solutions to crime problems. where drugs are sold, focusing on locations Community involvement in planning that have repeatedly been the site ofdrug civil remedies is critical, according to Mr. activity. Ad Hoc uses trained volunteers to Finn. In Los Angeles, for example, citizens observe activities, take down license plate numbers, and identify the property owner.

Community Policing Conference • 45 The owner is invited to a meeting with Civil forfeiture laws are used when representatives ofthe police, prosecutor, and either a property owner or a tenant is selling Ad Hoc. At the meeting, the owner is asked crack. In all search warrant cases, the DA to sign an Ad Hoc agreement to evict the sends a letter explaining that the owner can drug-involved tenant and to improve the lose his or her property and offering to help property. If the owner does not comply, the evict tenants if necessary. An in-house prosecutor initiates civil nuisance abatement assessment showed that drug activity ceased proceedings. Although the Ad Hoc at 27 of 30 houses where the owner received agreement has no legal force, it can be used such a letter. Mr. Toczydlowski also as evidence ofan owner's knowledge ofthe stressed the importance ofpublicizing the problem. Mr. Finn also noted that citizens law and the civil forfeitures that occur. The may be more inclined to call Ad Hoc than potential loss of a home or property the police with tips about drug activity. investment gets owners' attention, he said. At the time ofthe conference, NIJ As a result ofthe LINE project, drug was reviewing the report on which Mr. sales are now much less visible in the 18th Finn's presentation was based (Using Civil district. Fw$er, the project has "created a Remediesfor Criminal Behavior: Rationale, perception among the populace that the Case Studies, and Constitutional Issues). criminal justice system works." In Mr. Albert Toczydlowski discussed the Toczydlowski's view, complaints to the Philadelphia District Attorney's LINE (Local police increased because "people saw that Intensive Narcotics Enforcement) program. when they complained, something This program, he said, was born of happened." frustration with drug dealers and with the In response to a question about inability ofcriminal sanctions alone to effect follow-up after houses have been forfeited, long-term solutions. Essentially a vertical Mr. Toczydlowski said the Philadelphia prosecution program, LINE focuses· on the DA's office may sell the property or may 18th police district. In this district, crack is give it to a church or a community often sold from the porches ofrow houses. organization. The DA's office tries not to The DA's office analyzes all complaints, seal the house, as the cost is $1,000, but at arrests, and drug cases in the 18th district­ times this is necessary. Owners who get "large and small, adult and juvenile"-and their sealed houses back must reimburse the interviews residents to determine whether cost ofthe seal. civil remedies may be appropriate. A Before his recent appointment as a MAPINFO.software program is also used as deputy superintendent ofthe Boston Police part ofthe analysis. Department, Bill Johnston was commander Mr. Toczydlowski said there are ofthe department's community disorders many concerned residents in the 18th unit. This unit was formed in 1978 because district, and their participation is critical. ofdisturbances related to busing. At that For example, at one neighborhood bar, many time, Massachusetts did not have a civil arrests had been made but the bar was still a rights law. trouble spot. When the liquor control board Superintendent Johnston discussed met to consider renewal ofthe bar's license, several cases to illustrate how the state civil 10 police officers and a busload ofresidents rights law has been used since then to came to testify at what is typically a routine combat threats, coercion, intimidation, and hearing. The license was not renewed, and violence. In one example, an African the bar closed. American family "bought a dream house" only to have 18 windows broken out in one

Community Policing Conference • 46 night. Of 14 persons believed to be he or she no longer represents a threat; and involved in the crime, three were arrested on any bodily injury constitutes a felony civil rights violations. In another case in the punishable by 10 years in prison. Dorchester section, both criminal and civil Superintendent Johnston also statutes were applied, and the perpetrators noted that currently the gay community in were enjoined from going within 100 feet of Boston is "being terrorized." The the residence. There are several advantages department is now looking into ways the to applying the Massachusetts civil rights state civil rights law and other civil remedies law in these and other cases. The proof can be applied in these cases, as well as in required is "preponderance ofthe evidence"; domestic violence and gang cases. the burden is on the perpetrator to prove that

Community Pollclng Conference • 47 Partnership Pan.el: U.S. Department of Education

school, schools must be made safe to attend. Panelists: William Modzeleski, In a recent study in USA Weekend, close to Director, Drug Planning, U.S. 50 percent ofstudents polled said they avoid DepartmentofEducaffon school restrooms out offear, and about 60 Ronald Stephens, Executive Director, percent said they do not feel safe at school. National School Safety Center, Westlake Truancy has a high correlation with Village, California daytime burglary, and suspending or expelling students gives them more Peter Blauvelt, Chairperson of the opportunities to commit burglaries. Truancy Board, National Association of School can run high: ofthe 1.6 million students in

Safety and Law Enforcement OfficersI the Los Angeles public schools, some and Director of Security, Prince 300,000 are truant daily. George's County, Maryland, Schools One method ofreducing truancy involves intervention by the police. In William Modzeleski introduced data Honolulu, the chief ofpolice sends letters to from the Department ofJustice, the Bureau parents whose children are absent four ofJustice Statistfos, and the Centers for unexcused hours. The parents and children Disease Control that suggest school crime are requested to attend a four-hour lecture by and violence are up. The number of thefts police on a Saturday. and assaults and the number ofweapons Reducing school violence often confiscated have risen to the point where requires reducing gang activity in schools. some 3 million thefts and violent crimes Gang members are 10 times more likely to occur on or near school grounds annually. carry a weapon to school than nonmembers During the 1992-1993 school year, about 30 are. students and teachers were killed at school The San Antonio school district and or on their way there. Twenty, ten, and even police department have developed a 10-point five years ago such a rate was unheard of. program to reduce gang activity. The points Because students cannot learn well are as follows: when they are surrounded by violence, the 1. Be honest. Admit there is a gang Department ofEducation is attempting to problem. help reduce the crime rate so that by the year 2. Get smart. Teach police officers 2000 all students will attend schools that are and school employees about safe and drug-free. The proposed Safe gangs. Schools Act would provide local schools 3. Identify gang leaden. Gang with about $175 million to fight crime leaders move from city to city, through security measures and such spreading gang influence. techniques as conflict resolution and peer 4. Don't close at 3:15. Give kids mediation. Under the act, schools would be something to do after school obligated to participate with communities in instead ofjoining gangs. crime reduction, set clear policies on 5. Work with the police. weapons and violence, and develop Cooperation between schools and programs that do not rely solely on security police is essential. measures. 6. Involve transfer students. They Ronald Stephens commented that if may not already belong to gangs. children are going to be required to attend

Community Policing Conference • 49 7. Get parents on your side. Another challenge is what to do with Obviously, the participation of dangerous students. In Prince George's parents in gang reduction is County, for example, a student who brings a crucial. gun to school is automatically expelled for 8. Find role models. Gang leaders the current semester plus one more semester. fill the role-model vacuum to the That leaves the offender out on the street for detriment ofall. up to a year with little to do but cause 9. Work together. The gang trouble for the public and the police. Ifthe problem is more easily combated juvenile is arrested, the judge may well when antigang efforts are require that he return to school, but the coordinated. schools do not want him back. 10. Believe you can make a A level ofdistrust exists between difference. The right motivation school administrators and police. Some of can work wonders. that distrust is caused by laws that prohibit . Some cooperation requires new information-sharing. For example, even forms ofinformation-sharing. To give though the cause ofcrime reduction would teachers some warning as to which students be served by passing the information along, might be more likely to attack them, both in most states the police are prohibited from Virginia and California now require the giving school officials the names of courts to inform school principals when a juveniles they arrest in a school, even student has a criminal history. students caught burglarizing a school on a Peter Blauvelt remarked that weekend. schools tend not to be forthcoming regarding The Prince George's County school what goes on inside their walls. How can security department uses sworn, trained the gap between· schools and police be officers with full powers ofarrest, but the bridged? officers are unarmed and wear plain clothes. First, schools must differentiate The investigators and security officers in the between violations ofschool rules and actual department make a point ofgetting to know crimes. Rule violations can be dealt with by students. That technique pays off in terms school officials, but when crimes occur, of information. In particular, almost all schools should call the police. guns confiscated in the schools are first One challenge in reducing school discovered through student tips. violence is the lack ofdata. Schools do not The key to any solution to school keep proper records, so it is difficult to violence is to intervene with students at a devise a crime-reduction plan or chart the younger age and to encourage the success ofschool safety measures. involvement ofparents.

Community Policing Conference • 50 The Homeless in the Community

Superintendent Evans related that Moderator: Patrick V. Murphy, ' according to a census ofthe homeless Director, Police Policy Board, U.S. conducted by the Mayor of Boston's Conference of Mayors, Washington, Emergency Shelter Commission, last year D.C. the homeless population ofBoston increased Panelists: Paul F. Evans, by 12 percent to 4,411, either on the street or Superintendent-in-Chief, Boston, housed in a variety ofpublic and private Massachusetts, Police Department shelters. From a law enforcement perspective, most ofthe homeless are people Julie Rusk, Manager, Community and with problems rather than people who are a Neighborhood Services Division, City of problem. However, a sizable minority ofthe Santa Monica, California homeless represent a considerable drain on police resources. As the public service Marsha Martin, Executive Director, agency that is available on a 24-hour-a-day lnteragency Council on the Homeless, basis, Superintendent Evans explained, Washington, D. C. police have often been forced to take Superintendent Paul Evans traditional roles in dealing with the portrayed the extent ofthe problem by homeless. There are limited options for reviewing points that have affected the dealing with the common problems that possibility ofshelter for the homeless. arise. Those with alcohol abuse problems Alcoholism has been decriminalized, and would be transported to a detoxification most vagrancy statutes are now recognized facility or to a district police station to sober as unconstitutional. A night in the jail can up. Individuals under the influence ofa no longer represent an option. narcotic drug could only be taken to a Detoxification facilities are only a short­ hospital for appropriate medical care, unless term "crisis" solution and have always been they had been arrested for a criminal charge. inadequate to handle the number of Once released, they, too, would soon alcoholics. Skyrocketing real estate values become a law enforcement problem again. caused a tremendous increase in the cost of Because ofthe continuing policy of housing in the last two decades. Retirees, de-institutionalization for the mentally ill, the elderly, and many others living on fixed there is no place to take those individuals for income no longer were able to afford long-term care. Even if they display violent housing costs. Even many working class behavior, individuals taken to a psychiatric people could not support themselves or their center for treatment are generally released families. State mental health systems added after being placed on medication to control to the problem by putting a large number of aggressive tendencies. Victims ofdomestic people with marginal ability to care for violence, too, frequently resort to a shelter themselves out on the street. Additionally, for temporary housing. Police intervention nearly an entire generation ofVietnam-era consists ofthe response to the initial call for veterans with physical and mental disorders police service from the victim and offollow­ have been left without societal support. The up investigation for prosecution ofthe economy, in decline since the late 1980s, abuser. caused a sudden increase in unemployment. The advent ofthe neighborhood policing model has significantly altered the

Community Policing Conference • 51 way police deal with the homeless. . officer to respond properly if that person Superintendent Evans noted that were suffering from a heart attack, stroke, or partnerships have been formed with other major illness. Similarly, knowing that corporations, public agencies, and private a mentally ill person is nonviolent can make nonprofit agencies to provide care, shelter, a big difference when responding to calls for and services for the homeless. This has police service. relieved the police ofthe burden ofcaring Other joint efforts include the for homeless people who are not guilty of following: breaking any laws. Public and private • A police detail on the premises ofa shelters have taken a much more active role shelter (paid off-duty police officer) in caring for the chronically homeless-the • Church-sponsored meal programs mentally ill, the alcohol abusers, and the and clothing distribution for the substance abusers. homeless Increased use ofshelter facilities • Business community funding for a required training on the part ofboth the vehicle that transports the homeless police and shelter staff. The Boston Police to shelters Academy developed courses on nonviolent Superintendent Evans noted that conflict resolution techniques, which are there are many continuing problems in currently taught to all police recruits. dealing with the homeless. Since a sizable Additional training concerns protecting minority ofthe homeless are either mentally oneself from an assaultive person without ill or inebriate, no neighborhood wants to injuring him or her. Training seminars are face the prospect ofa large number of shared with shelter staff. Referral homeless persons living in or hanging procedures have been developed to educate around their area. This has resulted in the police about who could be properly shelters for the homeless being located in referred to a particular shelter, who should unfavorably remote nonresidential areas. In be transported to a hospital, and who would many cases, the homeless really need be better served by a short stay in a police counseling, training, job referral, housing facility. Police personnel learn about the assistance, and perhaps residential care. various capabilities ofthe shelters available. These services are beyond the scope ofany Different shelters take certain segments of law enforcement agency and must come the homeless population but not others, i.e., from a network ofother sources. Increased adult men only, veterans, women only, etc. funding from both the state and federal Most private nonprofit shelters will not governments is necessary to truly alleviate accept a person who is inebriated, under the the plight of many ofthe homeless. influence ofa controlled substance, or In the short term, the police must still behaving aggressively. These individuals balance the needs ofthe homeless with those either remain in police custody or must be ofthe rest ofthe community. Citizen referred to a public shelter. complaints ofaggressiveness on the part of In the area ofproblem solving, noted some panhandlers have necessitated a Superintendent Evans, officers who are review ofthe constitutjonality ofcity familiar with their sectors or beats, in the ordinances requiring a permit in order to sense encouraged by community policing, beg. Community members need to better have obvious advantages over traditional understand that removing the homeless is patrol officers. Familiarity with someone not necessarily an appropriate use oflaw who appears regularly on the street in an enforcement resources. In conclusion, officer's beat might, for example, enable the Superintendent Evans pointed out that

Community Policing Conference • 52 homelessness is a societal problem with to smaller indoor sites linked to many causes and can only be solved by a services multifaceted approach. It will take the • Institution ofzoning changes to continuing efforts ofthe police, the business facilitate the development of a range sector, public and private agencies, and the ofaffordable housing and shelter community to eliminate homelessness • Assistance to specific prioritized entirely. The homeless situation can be shelter/housing projects solved, but it cannot be solved by law • Identification ofnew city funds to enforcement alone. implement social service and Julie Rusk reported on the efforts of housing projects the Santa Monica City Council to activate • Continuation ofwork with the and coordinate various city agencies to County ofLos Angeles to develop address the problem ofthe homeless in their stronger county roles in dealing with city. The estimated population ofhomeless homelessness, specifically mental in Santa Monica is 1,000 on any given night health, in Santa Monica and between 3,000 and 5,000 including • Increased coordination ofexisting persons in shelters and on the street over the social services, mental health, and course ofthe year. An increasing number of law enforcement outreach teams low-income persons and families at risk for • Enhancement of law enforcement homelessness add to the city's burden. efforts to eliminate illegal activities In March 1991, the City Council in parks and other public places appointed a Task Force on Homelessness • Adoption ofregulations controlling composed ofbusiness representatives, the distribution offood in public religious representatives, community parks members, and social services representatives • Maintenance of funding to nonprofit to formulate recommendations for short­ homeless service providers, despite term actions and long-term strategies. The citywide budget cuts task force's recommendations, contained in a The police department has played a report entitled The Santa Monica Task Force large role in this effort. Twenty additional on Homelessness: A Call to Action, were officers were added in fiscal year 1991-1992 unanimously adopted by the City Council in to provide full enforcement ofhigh-profile December 1991. The recommendations crimes. The police department's Office of address issues ofpublic health and safety, Special Enforcement targets parks and social services, shelter and housing, neighborhoods for more effective patrolling. resources and funding, and advocacy and Police resources are being supplemented by partnership. These recommendations reassigning city park rangers and a special attempt to balance a social service and HELP (Homeless Enforcement Liaison housing focus with public safety. Program) team to help implement Since adoption ofthe recommendations ofthe Task Force on recommendations by the City Council in Homelessness. December 1991, the following measures Additionally, Santa Monica's city have been implemented: attorney is developing an alternative • Institution ofan ordinance sentencing program, which will use prohibiting encampments in parks community service and possibly mandatory and other public spaces treatment. The Community and Cultural • Moving ofthe large outdoor (City Services Department is currently working to Hall lawn) FAITH Meals Program upgrade the maintenance and security ofall

Community Policing Conference • 53 26 public restrooms in the city and is by all levels ofgovernment as well considering the use ofportable toilets to as the private sector increase available bathrooms. That agency • Ensuring that communities and is increasing visible recreation activities to other organimtions receive encourage positive community use ofthe necessary technical assistance to parks. Sample activities include after-school effectively help the homeless sports, play groups, art shows, and park • Disseminating information on concerts. federal resources for assisting the Marsha Martin spoke about the homeless Interagency Council on the Homeless, which Members ofthe council include was established in 1987 by the Stewart B. many heads offederal departments, such as McKinney Homeless Assistance Act. The the Department ofHousing and Urban council provides leadership for activities to Development, the Department ofHealth and assist homeless individuals and families. Human Services, and the Department of Some oftheir major activities include the Veterans Affairs. The council coordinates following: various policy-level working groups and • Planning and coordinating federal task forces, and it meets monthly to provide programs for the homeless and a forum for programs and special initiatives. making or recommending policy In addition to the council's staff in changes to improve such assistance Washington, D.C., there are full-time • Monitoring and evaluating regional council offices (provided by HUD) assistance to the homeless provided in each ofthe 10 federal regions.

Community Policing Conference • 54 Hot Spots of Crime

anonymity disappeared. This took three to Moderator: Johnnie Johnson, Jr., four months. As police showed that Chief of Police, Birmingham, Alabama, information from residents would produce Police Department action, more information became available. Panelists: John "Jack" O'Connell This resulted in a reduction in 911 calls. ' Director, Delaware Statistical Analysis Now, the 911 number is reserved for true Center, Dover, Delaware emergencies, rather than citizen complaints. Public accountability ofpolice Adele V. Harrell, Senior Research increased. When the police chiefwanted to Analyst, Urban Institute, Washington, move a community police officer outside of D.C. the area, the community reacted. The officer was eventually returned to a community Michael Buerger, Visiting Fellow, assignment after citizens went to the mayor. National Institute ofJustice, U.S. Mr. O'Connell noted that this was a white DepartmentofJusllce officer in a black area. Jack O'Connell reported that After the police had locked up the Wilmington implemented community local dealers, a New York City gang tried to policing in 1989. The "hot spot" attacked in move in. Members were easily identified by Wilmington was in the city's east side, the beat officers. When they were arrested, where 9,000 residents live and where the gang members claimed police brutality. cocaine dealing was a problem. Analysis of Community witnesses proved the charges geo-coded 911 calls for service showed a false by testifying to resistance to arrest. decrease in calls between 1989 and 1992. Community meetings were able to force Moreover, the area from which most calls absentee landlords to attend to their came in had also decreased in scope. Fewer property. intersections or neighborhood streets were On a subjective level, Mr. included. ·O'Connell said that community residents Community policing involved more reported less fear ofcrime. In the target than officers on beat patrol. Community area, citizen complaints went up, as police leaders had asked for increased police responsiveness encouraged reporting. One enforcement. A community organiz.ation problem that interfered with the program committee met with police at least monthly. was the resignation ofa community program This group helped police determine how to director, who was not replaced for six address problems in the neighborhood. For months. This showed that community example, mothers who work at night may be policing without social programs is not unable to prevent youth from being out at effective. night. This could encourage the use of Overall, after one year, arrests and youngsters as "lookouts" for drug dealers. complaints declined in the target area. The solution was night child care. However, areas without community policing The evaluation methodology deteriorated. The Weed and Seed program involved interviews with police, community in Wilmington then focused on these areas. leaders, and social service agency personnel. This program includes federal law Interview results showed that police enforcement to supplement city police. The Seed side addresses the needs ofteenagers.

Community Policing Conference • 55 By 1992, most ofthe city was in important, as they bring people together. better order, except for one area without Agency networking is critical. Agencies community policing. must learn to work together. Dr. Adele Harrell gave an The research shows two distinct alternative description ofher study as approaches to analysis: (1_) situation "Anticipating and Combating Community management ( e.g., target hardening) and (2) Decay." The project goals were to increased active surveillance. Strategies are determine whether decay or crime developed linked to specific neighborhoods or crime first in a community and to use community problems. It is necessary to determine databases for prediction. whether the police or the community should The study began with a search for be in charge ofspecific programs. model programs involving police Dr. Michael Buerger described the partnership. Of 1,000 nominations, 50 were Minneapolis "Hot Spots" study, which was identified as being relevant model programs. designed to revisit the Kansas City Ofthese, 34 sites were selected for Preventive Patrol Experiment. That study interviews. Some examples of nominees are found no effect from preventive patrols. the following: However, the study had several flaws: • Good Neighbor Program in Gasden, • Inadequate sample size (15 beats), Alabama. This has no paid staff and • No measures ofprogram intensity, focuses on helping specific groups and in the community (e.g., elderly, • Dispersal ofpatrol over low-crime minorities) to develop leadership. areas. • Banana Kelly Community The Minneapolis study focused on Improvement Association, New York 110 hot spots, used neutral observers to City (Bronx). This group was measure patrol presence, and focused on concerned with crack and arson. It areas ofdocumented high-crime levels. now owns 900 rental units and seeks Observers reported on both presence of to increase citizen home ownership. patrol cars and officers driving through on The police are one of 16 groups in patrol. In the patrol areas, police would the association. Among its drive in, leave the car, and either walk a beat activities are police enforcement of or otherwise appear on the street. There was code compliance and building no schedule for these actions. maintenance. The study compared increased police • Avenue West Community-Oriented presence in 55 test hot spots versus regular Policing, Milwaukee. This group presence in 55 control hot spots. These hot works in an area with significant spots varied in composition: commercial activity near downtown. • 46 hot spots _were primarily It emphasizes target hardening, commercial. lighting, etc. • 42 hot spots were primarily The key lesson from the study is the residential. importance ofjoint process, rather than • 22 were mixed commercial and program specifics. Activities such as residential. painting housing or installing lights are

Community Policing Conference • 56 Personnel Issues in Community Policing

2. Be committed to the problem­ Moderator: Elaine S. Hedtke, Chief of solving process. Use data to Pollce, Tucson,Arizona,Pollce make decisions. Department 3. Seek employee input before you Panelists: Ted Balistreri, Captain, make decisions. Madison, Wisconsin, Police Department 4. Believe that the best way to do the work will result. Robert Trojanowicz, Director, National 5. Develop mutual respect among Center for Community Policing, employees. Michigan State University, East Lansing, 6. Have a customer orientation Michigan toward employees and citizens. 7. Base your management style on Mary Ann Wycoff, Project Director, the behavior ofthe 95 percent of Police Foundation, Tarpon Springs, employees who work well. Deal Florida with the other 5 percent Captain Ted Balistreri ofthe promptly. Madison Police Department said his 8. Improve systems before placing department began experimenting with individual blame. community policing about seven years ago. 9. Avoid top-down decisions. Department managers read about the subject 10. Encourage creativity and tolerate and visited different cities to see what other honest mistakes. departments were doing. They concluded 11. Be a facilitator and coach. that early attempts at community policing 12. With teamwork, develop goals failed because they lacked a managerial with employees. foundation. Quality policing requires physical The Madison Police Department decentralization. The police must work envisioned a different kind ofcommunity among the people. To test the theory of policing program, one that would be closer quality policing, the Madison Police to the people and would emphasize "quality Department allowed a group ofits inside, quality outside." The department employees to set up and design an implemented a new managerial approach experimental police district that covered called quality policing, in which managers one-sixth of Madison. The officers were acted as facilitators and employees were even allowed to choose their own involved in decision-making. Moreover, commander. Among other positive results, department employees were treated as the officers there were more satisfied and internal customers who must be given the called in sick less often. opportunity to do their jobs right. The department's efforts were The department articulated the difficult, however, due largely to the lack of following 12 principles as the bedrock ofits models to follow. Among the obstacles that quality policing program: had to be overcome were the fear ofthe 1. Believe in, foster, and support unknown, the fear ofchange, the attitude teamwork. that "ifit ain't broke, don't fix it," and, among managers, the fear ofthe loss of power.

Community Pollclng Conference • 57 Robert Trojanowicz stated that • Will citizens volunteer their efforts much confusion exists over what constitutes to make the community better, community policing. Common elements in thereby giving police more time to many definitions include decentralization, attend to community policing posts lasting 18 months or more, and needs? community prioritizing ofproblems to be • Will community groups pitch in to solved. make community policing work? The National Center for Community • Will police chiefs be given job Policing (NCCP) conducted research to see security so they can experiment with how many police departments are community policing? performing community policing. The • Will the trend toward private research instrument asked respondents for policing eventually put police out of their departments' definitions ofcommunity business? That is, will the public policing. Those definitions are currently pay for free policing for the poor being analyzed for common elements. In when the time comes that most the meantime, the director ofNCCP offers people pay for their own policing? his own definition ofcommunity policing: a Some departments should not philosophy offull-service, personalized undertake community policing. That policing where patrol officers operate for 18 policing style simply cannot succeed ifa months or more from a decentralized police department lacks the support ofits officers, station. the community and its subgroups, churches One approach to community policing and social agencies, political leaders, and the requires the establishment of a neighborhood media. network center. The neighborhood network Mary Ann Wycoff reported on the center is a single location from which a Houston Performance Measures Study. If police officer, social services worker, public community policing is to be effective, police health nurse, and other key persons work. departments must change their performance The police officer serves as the informal criteria for officers. To study the effects of leader ofthe group because he or she knows such a change, a research project was the community best and has the widest range undertaken in Houston, Texas, which, like ofoptions to use in response to various Madison, had set aside one-sixth ofthe city situations. for community policing experimentation. Obstacles to community policing can Houston changed its performance be stated in the form ofthe following measures to emphasize to patrol officers the questions: department's new expectations ofthem. • Where can officers find free patrol Research for the Houston Police Department time? Citizens might have to attempted to determine whether those new receive slower responses to performance measures affected officers and incidents that are not life­ whether the public noticed any difference. threatening. In the community policing area ofthe • Will police departments restructure city, one group of officers was exposed to themselves to select officers with the new performance measures, while a the right qualities for community control group ofofficers was not exposed to policing? the measures. The same was done in an area • Will departments conduct critical, ofthe city that was not set aside for long-term analysis of community community policing. policing?

Community Policing Conference • 58 After a trial period, the research likely to remember the names ofresponding found that officers subjected to the new, officers who were part ofthe experimental community policing-oriented performance group. However, the research turned up no measures had a stronger belief in the value other changes. Because ofa change in offoot patrol$, said they did more problem­ police department ad,ministration, Houston solving, and had more faith in the goodness is no longer practicing community policing ofcitizens. Citizens surveyed were more in the same manner.

Community Policing Conference • 59 Bureau of Justice Assistance's Community-Oriented Policing Demonstration Program and Prototype

are certain steps a department should go Moderator: Richard H. Ward, Acting through. However, there are many ways to Director, Discretionary Grants Program, implement community-oriented policing. Bureau ofJustice Assistance (BJA), The purpose ofCOPP is to design, U.S. Department ofJustice demonstrate, and assess a comprehensive, Panelists: Stephen J. Gaffigan, department-wide community policing Project Director, Community Policing prototype. BJA has established a Consortium, International Association of consortium consisting ofIACP, PERF, the Chiefs of Police, Alexandria, Virginia Police Foundation, and NSA to assist in the . development ofthe prototype. The COPP Richard Lewis, Research Associate, program will select four sites per year during Police Executive Research Forum the three-year span ofthe consortium, which (PERF), Washington, D.C. is supported by an appropriation of$125 million. John Doyle, Project Director, National Agencies interested in applying for Sheriffs' Association (NSA), Alexandria, the development ofa community policing Virginia prototype must be willing to accept major program planning and implementation Mary Ann Wycoff, Project Director, responsibilities. Selected sites must work Police Foundation, Tarpon Springs, with the consortium to carry out the Florida following: Federal Role. Richard Ward 1. Needs Assessment. Identify explained how BJA has been actively those areas requiring change. involved in the evolution ofcommunity 2. Strategic Plan ofAction. Design policing. Drug initiative programs in 1986 and fully execute a strategic plan and 1987 involved a systems approach to in support ofthe prototype drug interdiction and a problem solving implementation. approach to drug trafficking. Since 1992, as 3. Organizational Commitments. part ofthe "Weed and Seed" program, Create a project executive team, community policing has been developed and a local consortium involving wi~ BJA assistance. The latest community­ various stakeholders; maintain a oriented policing program (COPP) is a 1993 partnership with the consortium. BJA discretionary program. 4. Quality Control and BJA is looking for flexible Accountability. Accept rigid community-oriented policing models. This quality control and accountability is difficult since there is confusion about measures during the course ofthe what community policing is, and many multiyear project. different programs have been labeled 5. Expenditure o/Grant Funds. community policing. BJA contends that Expend grant funds only for there needs to be a consistent format and substantive purposes that directly framework which will be the underpinning support the project objectives. ofcommunity-oriented policing, and there

Community Policing Conference • 61 6. Key Program Elements. understood and practiced in some law Implement those elements enforcement agencies. (approximately 10) necessary to Consortium Prototype. Stephen carry out the prototype. Gaffigan explained the Community Historical Perspective. Mary Ann Policing Consortium's effort at developing a Wycoff pointed out that there is a core community-oriented policing prototype that group ofpolice agencies that are doing will have a strategic emphasis. Like community policing. This is a groundswell traditional policing, COPP will have a that has its roots in the seventh principle of strong focus on the control and prevention of Sir Robert Peel, which stated, "The public crime. The program will try to reduce the are the police, and the police are the public." schism that exists between traditional and Police administrators at the turn of community-oriented policing. the century began to structure their _ The two keys in COPP are problem departments under a strong centralized and solving and community engagement. Both controlling system to combat corruption. must be approached from various levels: With technology changes (automobile, grassroots (beat/neighborhood), department­ telephone, radio), the officers became more wide, and jurisdiction-wide. and more efficient but more and more The requirements for the prototype removed from the community. At the same include a detailed needs assessment and time, communities were changing and strategic action plan. The following are becoming more diverse. some ofthe key points to be stressed: In the 1960s, there was anger and • The department's policing culture frustration throughout the nation. The has to change. police became the target. The riots and civil • Management style and structure disobedience became a wake-up call for the have to change. nation. During the 1970s, three presidential • The department must decentralize. crime commissions were formed; new police • Patrol officers' responsibility and professional associations were created authority have to expand. (Police Executive Research Forum, Police • The department's systems, policies, Foundation); federal legislation and funding and practices have to support were passed (with oversight given to a new community policing (focus on agency, the Law Enforcement Assistance internal operations before external). Administration); and extensive research • Politicians and the business began. Some ofthe principal research that community must be involved. had an impact on community policing were • The media must be involved to help the Kansas City patrol studies, San Diego's influence the community. beat profile study, and the problem solving • Plans must be made for tactical research. application ofprograms. In the late 1980s, there grew a The consortium will have a definite willingness on the part oflocal government operational focus. It will see that the and police executives to change the status prototype is practitioner-driven. The quo. Wilson and Kelling's "Broken consortium will develop a mechanism to Windows" article and Herman Goldstein's assess the prototype. It will expand as a Police Community Problem Solving resource center to provide referrals for provided the direction. The private sector's jurisdictions having specific needs. emphasis on participative management and Evaluation. Richard Lewis total quality management began to be explained that evaluating the community-

Community Policing Conference • 62 oriented policing prototype is necessary in officers. order to measure progress; to identify what Measures ofequity would include elements have to be changed or dropped; to elements like the number ofways citizens support continuation ofCOPP, ifit is have access to police service. working; and to make sure communities are Prototype Flexibility and ready for change. Adaptability. John Doyle said many chiefs Traditional measures ofpolice may be reluctant to get involved because the activity (e.g., reported crime and arrests) prototype seems to require strict adherence cause difficulties when trying to measure to a set ofstandards that may restrict the COPP activities and impact. The executive in carrying out the department's consortium has identified three COPP mission. The consortium is stressing measures: efficiency, effectiveness, and flexibility. It understands that each equity. Measurements ofcommunity input jurisdiction is different and will approach also impact the evaluation. It is essential to implementation differently. For example, haye community input, since concerned appointed chiefs ofpolice and elected stakeholders should have significant sheriffs look at the community differently. influence on police policy, procedures, and The size and diversity ofthe community practices. COPP requires the establishment (population, density, composition), as well ofcollaborative partnerships with the as locality ofthe community (inner city, community and many private and public suburban, rural), affect implementation. agencies. Each demonstration site will have Effectiveness measures would sufficient flexibility to create partnerships include number ofproblems identified, between the police, community, and service status, and results. The number ofpersons providers. The consortium will not dictate involved and their affiliation would also be who should be on the project team or the considered. local jurisdiction's consortium. Measures ofefficiency would include Four cities have already been chosen. what the department did to realign its Two ofthe most difficult conditions to be structure and operation to support worked on are overcoming citizen apathy community policing, decentralize the and getting a jurisdiction's long-term decision making process, and empower the commitment.

Community Policing Conference • 63 How Abuse of Fore~ Can Undermine Community Policing

in the development ofcommunity policing. Moderator: William A. Geller, The greatest responsibility ofthe police Associate Director, Police Executive department is helping officers reach their Research Forum, Wilmette, Illinois highest level ofperform~ce, which, he Panelists: Gayle Fisher-Stewart, notes, will involve every aspect ofpolice President, DA 'VO, Ltd., Takoma Park, work. Mr. Geller also advocated engaging Maryland in creative order maintenance tactics and developing support mechanisms for officers Ellen Scrivner, Visiting Fellow, National who may make mistakes in exercising the Institute ofJustice, U.S. Department of enhanced authority given to community Justice policing officers. Dr. Gayle Fisher-Stewart is a Norm Stamper, Executive Assistant private consultant and trainer who retired Chief, San Diego, California, Police from the District ofColumbia Police Department Department after 20 years ofservice. She William Geller began the session by contends that community policing will not briefly discussing how incidents involving prevent abuse offorce. Effective abuse offorce by police present police community policing is based on trust departments with important opportunities between police and the community. Police with regard to community policing. have no power unless it is granted to them Incidents ofabuse offorce draw attention by the community. Abuse offorce happens from all sectors ofa city to the police when police use force to assert authority that department for a given period oftime. has not been bestowed by the community. While this attention is generally undesirable, She added that abuse offorce results from he noted that it must be looked upon as an corruption ofvalues and trust and from opportunity to send good messages and personal and organizational problems-as, for address troublesome issues. He cautioned example, when a department's espoused that police departments involved in values clash with operational values. Lastly, community policing must be especially Dr. Fisher-Stewart offered a dictum that conscious not to confuse the public on how police are treated as well by the community they handle these situations. In situations of as the community thinks it is being treated crisis, police departments must keep their by the police. The frustration ofofficers community policing agendas in the forefront with the community is all too often taken out and ensure that responses are consistent with on the community, resulting in abuses of this agenda. He points out that what is said force. in a state ofcalm is often forgotten in the Attempting to address abuse offorce midst ofcrisis. For police, Mr. Geller must involve addressing internal conflicts advocated developing strategic and within police departments. Dr. Fisher­ deliberate responses to crisis situations that Stewart noted the importance ofde­ are consistent with and not contradictory or emphasizing rank and personality issues and dismissive ofcommunity policing agendas focusing on assigning officers to jobs for and goals. which they are best suited and qualified. Mr. Geller emphasized two central The community and officers need to issues in dealing with police abuse offorce perceive that there is a sharing ofpower and that patrol officers are respected and valued.

Community Policing Conference • 65 Community policing needs to be all situations, not just those related to patrol implemented at the patrol level, but patrol duties. officers are still perceived as lowly. It is not Dr. Scrivner also gathered data and uncommon that officers are assigned to information through situational counseling patrol duty for punitive reasons. High­ with officers. Findings dispelled common ranking officers, conversely, are perceived misconceptions that abuses offorce result to have special privilege, and less from manpower shortages, officer burnout, responsibility and accountability. When or working in areas with especially serious higher-ranking police have special privilege problems. Dr. Scrivner found that abuse of and patrol officers do not, the patrol officers force occurs among all segments ofthe often exercise their privilege in the street police department and in all areas ofthe city. where they can impose it. Patrol officers She identified five categories of then exert force and privilege on those over abuse offorce: whom they have control: citizens. 1. Early career stage To change the trend and tradition of 2. Patrol style abuse ofpolice authority, Dr. Fisher­ 3. Job-related Stewart said that police must talk openly 4. Personal problems about the flaws and abuses in system 5. Chronic risk policies, procedures, and operations. The early career stage cases, which Changes need to be made in the most basic account for 19 percent, involve young levels ofpolicing and need to begin with officers who lack discipline and good training. Those who train new officers will supervision. When undisciplined and poorly train as they have been trained. In supervised officers are left unattended, abuse particular, she said training manuals and offorce may become a part oftheir policing departmental policies and procedures need style, thereby evolving into the patrol style to be reviewed and rewritten so they reflect category, which represents 22 percent of positive language. As long as there is a cases. Dr. Scrivner notes that this type of system that rewards abuse offorce, there can officer can usually benefit from mentoring be no essential change. and structure. Abuse offorce that results Dr. Ellen Scrivner is considered a from officers' burnout or particular work­ national expert on police psychology and related conditions is included in the job­ has worked in a variety ofcapacities in this related category and accounts for 17 percent. field. She is currently conducting research Twenty-seven percent ofabuse offorce on police use ofexcessive force. She began cases were attributed to personal problems her study by interviewing 65 psychologists that involve a significant personal loss. from 50 police departments nationwide to Traumatic losses, Dr. Scrivner explained, glean how they view abuse offorce issues. undermine the confidence and self-esteem of She found that police psychologists were these officers. They then assert themselves used more for crisis intervention and pre­ in other ways and find their outlet through recruitment screening, and they were not excessive force. The fewest cases (16 integrated into regular department policy percent) were in the chronic risk category, and program development. To be most which included people with personality effective for reducing abuse offorce, Dr. disorders. Scrivner contended, psychologists must Reducing abuse of force must be become involved within the department to approached_through systematic training and monitor early warning signs for risk of as part ofthe police department's human abusing force. Warning signs are found in resources development process. Different

Community Policing Conference • 66 kinds ofabuse offorce should be addressed communities they serve. They belong to the with specified kinds ofapproaches. Patrol community, and the community should be a style and early career types ofabuse offorce senior partner in that relationship. will respond to organizational help. "Only a revolution will save us," said Personal problem and job-related cases need Mr. Stamper. This revolution, he counseling. Chronic risk abuse of force explained, means "debureaucratizing" the cases, Dr. Scrivner stated, must be expelled police, eliminating the paramilitary from the police department. structure, and promoting officers for their The effectiveness ofcommunity qualifications. Furthermore, a unified front policing is challenged by polarization that ofcommunity-based organizations and frequently arises over law enforcement corporations representing the full range of issues. Norm Stamper noted that there is diversity in communities should be created. no better example ofthis problem than with Differences among people should be brought situations involving abuse offorce. The up for discussion rather than "left at the Rodney King case, he noted, was a blatant door," so that people can be disarmed of example ofexcessive force, yet it sparked a their concerns, suspicions, and fears. In that nationwide debate that did not consider the way, people can build on diversity. sizable gap existing between police and the Mr. Stamper put forth several "rules community. ofrevolution" for po~ice and the community. Mr. Stamper emphasized that it is People must be systems thinkers. Since critical to direct energy to meaningful goals. crime and violence in this country are a part Community policing must overcome cultural ofa system, the solutions must also come and racial divisions and resolve issues that from a systems approach. People must have divide the police and community. He listed courage at all levels, from confronting crack three "truths" that must be addressed. "We , dealers on the street to asserting political are in danger oflosing our cities," he stated. views. People must not be frightened of Many cities have been rendered laws but must use them to reclaim the uninhabitable. Except for the fact that they streets. They must also act with dignity and do not have the means to leave certain urban respect for one another and include communities, millions ofpeople would everyone. There must be no tolerance of eagerly live elsewhere. He also noted that bigotry for any reason. Lastly, Mr. cultural, racial, and other diversity are Stamper stated that police must be treated unavoidable. Mr. Stamper pointed out that in a manner reflective ofthe community's police are not separate from the wishes, for, he noted, "we reap as we sow."

Community Policing Conference • 67 Training workshop: First Line Supervision for Community Policing

• 83 percent said their most serious Instructors: Edwin J. Donovan, problem was a lack ofsupport from Assistant Professor, Administration of peers and patrol officers. Justice, Pennsylvania State University, • 77 percent said management support University Park, Pennsylvania was minimal. William F. Walsh, Director, Southern • 72 percent said there were no job Police Institute, University of Louisville, descriptions for community policing Louisville, Kentucky officers or supervisors. • 65 percent said there were no William Walsh and Edwin community policing directives. Donovan both noted that their perspectives • 62 percent said there was no on the training topic stemmed from both evaluation plan. their academic work and their field • 62 percent said no training was experience as police officers. Dr. Walsh is provided. a former police lieutenant, having served 22 There is a clear need to structure the years with the New York City Police supervisor's role with regard to community Department. He now directs the Southern policing. Police departments need to do the Police Institute and is an as,sociate professor following: in the School ofJustice Administration at • Define the job function, duties, and the University ofLouisville. Mr. Donovan responsibilities. This involves was formerly a patrol supervisor and a unit conducting a job/task analysis and commander for the New York City Police developing a job description. Department and helped develop Penn State's • Identify the knowledge, skills, and continuing education course on community behaviors that are desirable in a policing. community policing supervisor. Dr. Walsh said a continuing • Consider the above characteristics in complaint is, "sergeants never do their jobs." the officer selection process. Sergeants are in high-profile, high-risk • Provide training. positions, and these positions are critical to • Conduct evaluations. the success ofcommunity policing. Jerry The department must also empower McElroy ofVera Institute wrote about the supervisors by taking the following steps: sergeant's role changing from control­ • Develop policies and procedures for oriented to participative. Herman Goldstein community policing. states that sergeants should be problem • Provide support systems (e.g., solvers, communications conduits, and determine who will be the mentor or motivators, and should participate with ombudsman for the supervisor). officers throughout the problem-solving • Include supervisors in operational process. But sergeants have not been planning. adequately prepared for their changing role. • Encourage intra-organizational Dr. Walsh conducted a study of60 networking. Community policing line supervisors involved in some form of supervisors need to communicate community policing in departments with 50 with each other and advocate for to 150 sworn personnel. Although the study their needs within the department. did not involve a representative sample, the Mr. Donovan noted that supervisory results are instructive: training for community policing is typically

Community Policing Conference • 69 limited to reviewing forms, troubleshooting, in how we police the society and in how we and disciplinary procedures. Instead, the manage police organiz.ations." The change following training topics should be began after World War II, when departments considered: started creating community relations units. • How to run a meeting Given the magnitude ofchange proposed, it • How to allocate resources in is helpful to consider the main attributes of proportion to needs failed innovation. The following list of • How to define a community causes for failure was adapted from a 1978 • How to enlist support from the publication by Wycoff and Kelling: community and get diverse groups I. Lack ofplanning and to work together understanding ofthe change • How to analyze crimes, crime process throughout all levels of patterns, and trends the orgaajz.ation • How to conduct local community 2. Ideas imposed from the top or relations programs from outside the organiz.ation • How to gather data for evaluation 3. Lack of support from the lower purposes ranks Mr. Donovan then discussed four 4. Mid-level managers and characteristics ofsuccessful teams. The first supervisors not included in the is a sense ofcommitment. Evidence ofthis planning, not prepared for new includes participation by all members, role changes, and thus shared leadership, and effective nonsupportive communication by all team members. 5. Failure to make organiz.ational, Conflict is also necessary. A healthy process, or structural changes exchange ofideas should be encouraged. required to support the new Although conflict should be controlled and program should focus on ideas, not personalities, it 6. The organiz.ational culture not should be sought out. Successful teams also supportive; new program demonstrate creativity. This is evidenced by inconsistent with departmental the use ofall possible resources; and by behaviors and belief systems taking unique approaches to problem 7. New program limited to an add­ solving, decision making, and process on or a special unit, not development. Finally, successful teams use integrated into the whole a consensus process to reach agreement. organiz.ation (thus becomes an Mr. Donovan noted that creativity "innovation ghetto") means violating policy. For example, 8. Overall effort made too fast should officers be permitted to play a Mr. Donovan emphasized the need baseball game with residents while on duty? to go slowly, build on successes, and plan What about assisting a religious organ­ carefully. Community policing probably iz.ation while on the clock? Supervisors stands the greatest chance ofsuccess in a must get their departments to write policy department that places a high value on patrol giving them authority to act in a community service (e.g., the department offers a good policing setting. patrol duty schedule, makes good personnel Dr. Walsh emphasized that selections, and "the brass stands up for community policing is "a significant change patrol").

Community Policing Conference • 70 Drug Use Forecasting and Community Policing

by weeding out chronic offenders and Moderator: Virginia Baldau, Director of seeding the communities by increasing Research, Applications and Training residents' access to social services. Division, National Institute ofJustice, San Diego, which has one ofthe U.S. Department ofJustice highest rates ofarrestees testing positive for Panelists: Carol Putnam, Social drugs, is a DUF data collection site. Among Science Analyst, National Institute of other uses, DUF data are employed in the Justice city's Weed and Seed program. The DUF data permit offender concentrations to be Susan Pennell, Director, Criminal plotted on a map ofthe city. A knowledge Justice Research Division, San Diego ofthose concentrations is used to allocate Association of Governments, San treatment resources most effectively. Diego, California Dr. Scott Decker discussed using DUF for drug research. Like San Diego, St. Scott Decker, Professor and Chair, Louis is a DUF data collection site. The Criminology and Criminal Justice DUF program provides information that is Department, University ofMissouri at St. useful in many elements ofcommunity Louis policing. In St. Louis, the data collection personnel share their data with the police. Charles C. Foti, Jr., Criminal Sheriff, First, DUF data collectors provide the police Orleans Parish, Louisiana, Criminal with information assistance. DUF Sheriffs Office information helps the chief ofpolice answer Carol Putnam gave an introduction media inquiries and helps clarify to the Drug Use Forecasting (DUF) Program demographic patterns in drug use (for ofthe National Institute ofJustice, which example, eight ofthe 42 neighborhoods in' collects data from 24 sites across the United St. Louis account for 40 percent ofthe States. The program's purpose is to monitor homicides). drug use among arrestees in urban areas in Second, operational assistance is order to alert local officials to drug use provided in the form oftrend-spotting and trends in their cities. add-ons. Add-ons are questions that can be In the program, booked arrestees added to DUF interviews for the purpose of give voluntary, anonymous physical gathering particular information that the samples. About 70 percent ofmales arrested police want. for burglary test positive for a drug, and Third, planning assistance is some 85 percent offemales arrested for provided in the form ofinformation that prostitution test positive for a drug. In fact, helps the police compete for grants and more than three-quarters ofall arrestees­ interact with other city agencies. For both men and women-test positive for at example, DUF interviews spotted a syphilis least one drug. The program is now in its epidemic in St. Louis. That knowledge was fifth year. passed along to other city agencies so they Susan Pennell reported on using could provide treatment to carriers ofthe DUF for Weed and Seed. Weed and Seed is disease. a federal initiative to revitalize communities Fourth, personnel assistance is provided in the form ofinformation that the

Community Policing Conference • 71 police department can use to warn or train intervening earlier than is typical to prevent its officers or to anticipate liability. For youth from becoming criminals-middle example, a knowledge ofthe level ofHIV school, not high school, would be the time to infection among arrestees can help the step in. He praised the Drug Abuse police department know what precautions to Resistance Education (D.t\RE) program. take in handling arrestees. In Orleans Parish, the sheriff's office Sheriff Charles Foti reported on established a partnership with local schools, correctional alternatives in an urban · routinely sending officers to eat lunch at the community. Orleans Parish had been unable schools. One goal is to reduce youth to raise taxes to build new jails; but by using recidivism. About 50 percent of 12-year-old DUF data, the law enforcement community arrestees in Orleans Parish are recidivists, as was able to convince the public to approve a are about 60 percent of 13-year-old bond issue to build and renew jails. DUF arrestees. data documented a rapid increase in hard One way law enforcement agencies drug use within the parish. can implement community policing is to The sheriff ofthe parish called on find new ways to help the community. The attendees to examine the details oftheir sheriff advised putting jail inmates to work local juvenile justice systems. He advised in neighborhood restoration.

Community Policing Conference • 72 Union Perspectives on Community Policing

budget and to increase police Moderator: A. Tony Fisher, Chiefof benefits. Police, Takoma Park, Maryland, Police • Unions support a higher level ofjob Department satisfaction. Panelists: Robert B. Kliesmet, Officer Mathieson recommends President, International Union ofPolice going to the officers and asking for their Associations-AFL-CIO, Alexandria, ideas. It is necessary to make a concerted Virginia effort to communicate with the rank and file. Managers must stress quality, not quantity, Bobby Mathieson, President, Police ofwork. Benevolent Association, Virginia Beach, Dewey Stokes, the national president Virginia ofthe Fraternal Order ofPolice (FOP), stated that the FOP has not generally Dewey R. Stokes, National President, announced itself for or against community Fraternal Order ofPolice, Columbus, policing. Ohio Community policing is a Officer Bobby Mathieson, president continuation of former police practices. ofVirginia Beach Police Department's Walking beats were used in the1970s, but Police Benevolent Association (PBA), stated many ofthe laws that supported walking that Virginia is a right-to-work state. officers (e.g., vagrancy and public Virginia Beach has an urban population of drunkenness) have been taken off the books. 410,000 and a summer population of 1 Police management placed officers into cars million, with a police department that has to make them more productive. Now, we between 650 and 675 sworn police officers. are finding the need to place officers back There are two unions: the PBA represents into the community. the rank and file. There must be commitment from the The department has gone through chief and middle management; if not, growing pains in developing a community community policing will waste time and policing program. From the department's resources. Community policing should not perspective there are some lessons to be be a PR program. It is an abuse ofofficers learned: to ask them to make politicians look good. • Sergeants have to understand that Why, after 10 years, do only 300 police they must relinquish the concept of departments have some form of community command and control. policing? · • Organizational constraints have to Management must be in the forefront be lifted. ofcommunity policing. There is a need for • Performance evaluations have to be positive communications between changed to reward community management and officers. Often, the chief's policing actions. expectations for community policing are not • Unions should be a strong advocate communicated to the officers. Job for community policing. placement must be community policing • Unions see community support as oriented. Promotions and assignments must helping the police to obtain their reflect commitment to community policing.

Community Policing Conference • 73 Police officers cannot be drained their outside employment. from response patrol to perform community Police unions sprang up when the policing functions. Ifmanagement is not rank and file officers lost faith in ready to share its authority, then it should management when negotiating for benefits. not take on community policing. Union Unions collected money, founded PACS, objectives are actually the same as those of made political endorsements, and supported middle management and executives. The candidates. Unions, not police departments, Fair Labor Standards Act and the Americans were seen as the organization that with Disabilities Act also contain factors appreciated what the officer faced on the impacting on community policing. street. There must be commitment to follow The International Union ofPolice through. Community policing includes the Associations (IUPA) supports community officer's involvement as a person in policing because it is a way the community community activity. Labor relations and the will support the union. In 1987, IUPA union can be used to effect change and received a small grant to look at community support the community. policing. When community policing was Robert Kliesmet emphasized that adopted in Flint, Michigan, the police community policing is not new. Police did received community support for increases in it way back in the 1950s. Even in the 1920s, pay and benefits. . Chief August Volmer espoused a form of Police management may not be community policing in order to respond to supportive ofcommunity policing because the problems ofthe inner city due to they may see it as conflicting with immigrants and poverty. The police reform management rights and requiring additional movement, following the Taylorism model staffing; and they are reluctant to include the (after Frederick Taylor, father oftime-and­ rank and file in the planning for community motion studies), brought about a change in policing. policing. It moved from a decentralized Mr. Kliesmet commented further structure to a strong central command and that the officers must be convinced about the control structure. idea first. They must be included in the The reform movement, which was planning for community policing. touted as a move to the police professional Management must also support community model, involved an officer's private life policing by making the commitment to more. For example, it required officers to allow officers the freedom to take action. take weapons home, required them to take Community involvement must be solicited, action ifthey observed a crime, and limited encouraged, and used.

Community Policing Conference• 74 Partnership Panel: Local Efforts to Rebuild Communities

experts were brought in through the Moderator: Julius Debro, Associate Enterprise Foundation to help develop Dean, University of Washington, community work groups. The work groups Seattle, W;;1shington were composed ofa range ofpeople, and, Ms. Bostick-Hunt emphasized, the Panelists: Barbara Bostick-HuntI Executive Director, Community Building residents were considered the experts for in Partnership, Sandtown-Winchester their community. The Sandtown­ Project, Baltimore, Maryland Winchester Project also emphasized leadership development and hired residents David J. Powers, Lieutenant, Chiefs to staff its programs. Executive Officer, Los Angeles, In the two years since the project California, Police Department began, many changes have been implemented in the neighborhood. Two David L. Armstrong, Judge/Executive, schools have been transferred to private Jefferson County, Kentucky management, an academy was established Barbara Bostick-Hunt was where parents and teachers receive efficacy appointed in 1991 by Mayor Kurt L. training together, Habitat for Humanity has Schmoke to head the Sandtown-Winchester begun building houses there, a youth Project, a comprehensive and integrated summer employment program has been project that has successfully enhanced the established whereby every youth seeking lives of residents in the Sandtown­ summer work is assured a job, a food and Winchester neighborhood ofBaltimore, clothing bank has been started, 80 residents Maryland. Three years ago, in this 72- have been employed in the construction of square-block neighborhood of 10,000 houses, and many others have been trained residents, 44 percent ofresidents were in housing construction and rehabilitation. unemployed, 72 percent were' receiving Since these changes within the community, public assistance, and it ranked highest in infant mortality has }?een reduced to almost Baltimore for crimes, violent offenses, zero percent, and crime was reduced by 15 incidence ofAIDS, and infant mortality. It percent as ofthe first quarter of 1993. is for these factors that the Sandtown­ The Community Building in Winchester community was selected as the Partnership in Sandtown-Winchester is pilot site for the Community Building in considered a most successful program. Its Partnership Initiative. success is due to what Ms. Bostick-Hunt The initiative was begun with a grant calls "reinventing government" so that from the Nehemiah Foundation to build 227 systems that operated poorly in a new homes and renovate old housing units. dysfunctional community are now part ofa New and renovated homes were desperately working, productive community. Mayor needed; however, the community recognized Schmoke has been supportive from the that new homes alone would not improve beginning and made this type ofeffort a the quality oflife without a plan to priority for his administration and the city. transform and sustain the community as a The city now has a model that it plans to whole. To build a partnership between the apply to other communities. community and government agencies, Lieutenant David Powers, a 21- year veteran ofthe Los Angeles Police Community Policing Conference • 75 Department (LAPD), currently manages families at risk-families for whom home LAPD's NIJ Partnership for Community ownership has declined to 16 percent, where Policing grant program. Through this one in four children live below the poverty program, he held a three-month series of level, and 40 percent ofchildren younger meetings with people from all sections of than age five live in poveJfy. the Los Angeles community in order to start The program is based on three the rebuilding effort. He says he realized principles that are keys to its success: very quickly that there were a host of inclusiveness, collaboration, and problems. Further, he realized that the grant accountability. The principles are translated would not go toward rebuilding the into action by implementing five goal areas: community, but rather toward rebuilding the 1. Getting agencies and providers to police department for the community. work together Lieutenant Powers conceded that the 2. Organizing and coordinating LAPD was very difficult to change and resources at the neighborhood commended Chief Willie Williams, an level outsider, for playing an important role in 3. Making employers more family­ creating a climate ofconsensus within the sensitive department. The chief, he noted, brought in 4. Involving young families at risk new light and changed the department's in controlling theµ- own destinies mood to one ofopenness. After months of 5. Deciding priorities with meetings, a commitment was made to maximum buy-ins change the core values statement, develop a The program attempts to involve as mission statement, and then develop a many agencies as possible and as early in strategic management plan for the police the process as possible. It is also helpful, he department. said, to create some momentum for the There were three basic elements organizations and give them a sense of underlying the approach to rebuilding the immediate accomplishment. His program police department. The department adopted places a one-year time frame on any action the philosophy ofstarting from the that emerges from the group's planning. beginning and rethinking what is being done This, he said, creates a healthy sense of at all levels. The department also decided to urgency and keeps everyone in touch with use what it called community-police how work is developing. It also helps to problem solving. Lastly, a commitment was ensure that goals and outcomes are made to rebuild community relationships measurable and well defined. Judge where they had been damaged and create Armstrong conceded that the process can be them where positive ones may not have slow and occasionally frustrating, and he existed. added that it helps immeasurably "to have a Judge David Armstrong was champion for the process who can be a elected judge/executive ofJefferson County, catalyst and who has the political will to Kentucky, in 1989, and chose as his keep things moving forward." This, he said, administration's theme Building on Our is his own role in the program. Best. As an example ofhis administration's Among the first steps in developing work in building communities, Judge the program was the formation ofan Armstrong highlighted a program aimed at advisory committee, which has grown to helping families with young children. It include representatives from more than 30 leverages resources and cooperation from organizations whose missions involve the bottom up. The program focuses on service to young families at risk. The

Community Policing Conference • 76 committee's work has included helping to strategy will be developed to meet the needs. design the program, providing general The need to make employers more program oversight, and setting the program's sensitive to the needs offamilies was critical rebuilding priorities. The committee also to community betterment, and Jefferson formed a task force that garnered the help of County set a precedent foi: other businesses more than 90 groups and organimtions to to follow. The government created a work toward one ofthe committee's top childcare subsidy for employees who had priorities: making the workplace more problems getting access to basic care. The supportive of family needs. Another project government is also working with the is a pilot effort called "The Neighborhood Chamber ofCommerce and the United Way Place," which brings together every major to form a network of local businesses to human services provider in a neighborhood- develop similar and other initiatives. . based, one-stop setting. In deciding the priorities, a set of The program has, from the criteria was developed to evaluate beginning, sought input and direction from suggestions from the community: residents. One example ofthis is a two-day 1. Is a strategy likely to have impact "visioning" forum, the first public on young families in the near involvement session, attended by more than future? 300 participants. This meeting identified the . 2. What efforts, ifany, are already need for a Neighborhood Resource Team underway with regard to the that will convene police, social and public proposed strategy? health workers, housing inspectors, 3. How timely and feasible is the counselors, and practitioners from other strategy? disciplines. This team is presently under The process ofdetermining priorities development. Two target neighborhoods is aided immeasurably by these criteria and will be surveyed regarding residents' by the direct participation ofthe community perception ofsafety conditions. Teams will in applying these criteria to their own. be formed and initial needs identified; then a recommendations to arrive at decisions.

Community Pollclng Conference • 77 Community Policing in Small Cities and Rural Areas

Pierce, he launched community policing Moderator: Donna L. Hansen, Chief of there. Initially, this involved a team ofsix Police, Ft. Myers, Florida officers, one sergeant, and one lieutenant. Panelists: Gil Kerlikowske, Chief of By April 1992, the department had created Police, Ft. Pierce, Florida three geographic patrol divisions. Essentially, there are now three "chiefs," Ralph A. Weisheit, Professor, each ofwhom serves between 12,000 and Department of Criminal Justice, Illinois 15,000 residents. Although crime rates State University, Normal, Illinois began a downward trend before his appointment as chief, community policing Carl R. Harbaugh, Sheriff, Frederick has had a significant positive influence on County, Maryland this trend. Crime rates in Ft. Pierce are now Chief Donna Hansen noted that at their lowest levels in more than 10 years. there are many possible ways to define small Sheriff Carl Harbaugh, formerly police department (e.g., by population with the Maryland State Police and the served, budget, number ofsworn personnel, International Association ofChiefs of or victimization problem). Ofthe country's Police, explained that Frederick County, more than 15,000 police agencies, 91 Maryland, located 45 miles northwest of percent employ fewer than 50 persons. Washington, D.C., has 165,000 residents Many ofthe policies and theories ofpolicing and covers 664 square miles. Although have been developed for big cities and do largely rural, the county is seeing an influx not work well in.small jurisdictions. ofresidents who work in Baltimore and in Chief Gil Kerlikowske explained the District ofColumbia. It is also the site that Ft. Pierce, Florida, a city of40,000 ofthe Presidential retreat, Camp David. The residents on the Atlantic coast, has a violent largest city, Frederick, has a population of crime rate comparable to that of 45,000 and a police force of95 employees. Washington, D.C. In the late 1980s, there The towns ofBrunswick and Thurmont each were 20 homicides in one year, and three have six officers. The county's main crime police officers were killed within the past six problems are burglary, domestic violence, years. The Ft. Pierce Police Department has and juvenile crime. The average patrol beat 150 employees, 108 ofwhom are sworn covers 72 square miles, but each deputy is officers. The jurisdiction has both industrial assigned more than one beat and may cover and rural areas. between 150 and 210 miles in a day. . Chief Kerlikowske noted that Sheriff Harbaugh promised a several elements ofteam policing are change toward community policing when he common to community policing ( e.g., giving successfully ran for office in 1990. Since patrol officers more investigative that time, the Frederick County Sheriffs responsibilities and encouraging beat Office has made many changes that officers to attend Neighborhood Watch demonstrate how community policing can meetings). In 1985, ChiefKerlikowske be implemented in a rural area. was a Fellow at NIJ, where he was involved One ofthe first steps was to form a in the Newport News, Virginia, problem 14-member advisory committee, which oriented policing experiment. In 1990, soon surveyed residents about the services they after he was appointed police chief in Ft. believed the sheriffs office should provide. The sheriff now sponsors a citizens' police

Community Policing Conference • 79 academy. In addition, the sheriff beg~ privacy and a sense of identity outside ofthe sponsoring teen dances, which the recreation police role. There is no police subculture department now supervises. At first, when a department has only five or six attendance at each dance was about 30; now officers. Police in rural areas are generally it is between 160 and 260. Deputies in more positive about their relationships with uniform work these dances. The sheriffs prosecutors, probation officers, and other office also supports "Safe and Sane criminal justice personnel. Differences Graduation" events, in which 98 percent of between rural and urban police tend to fade graduates participate. when dealing with the most serious crimes, Deputies are assigned to permanent but most police work does not fall into this beats. They also park and walk in shopping category. centers and small towns and attend civic Sheriff Harbaugh and Chief association and town meetings. As a result, Hansen noted that concern about liability is three towns have provided the sheriffs growing in rural areas and that the legal office with substations. The work ofsome climate has been influenced by attorneys deputies as emergency medical service and who have moved there from urban centers. fire department volunteers has also helped An audience participant noted that rural gain resident support for the sheriffs office. areas show evidence of serious crime, Dr. Ralph Weisheit explained that including methamphetamine production, air he is currently involved in a research project strips used for drug shipment, and organized with the National Sheriffs' Association and poaching. NIJ. The project involves conducting The panelists then discussed interviews and compiling all available concerns specifically related to community literature on rural crime and rural law policing in small departments. Sheriff enforcement. Harbaugh said the only associated cost for According to Dr. Weisheit, there are his office has been for training. Chief several reasons why cities should look to Kerlikowske said community policing in rural areas for community policing ideas. his department has not proved more labor Rural citizens are more likely than urban intensive than traditional approaches. In his residents to know their neighbors and to view, experienced officers who have become know offenders. Residents also expect a disillusioned with traditional enforcement wider range ofservices from the police. may be more amenable to community Often, when they call the police department, policing than officers with only a few years they ask for a specific officer. on the job. Chief Hansen noted that Like rural residents, rural police supervisors, particularly lieutenants, seem to know many ofthe offenders, and they have the most difficulty accepting a generally handle them differently than do community policing approach. She also urban police. Often, rural officers grew up noted that small local grants may be in the area where they make arrests. Even available to pay overtime. when this is not the case, they quickly lose

Community Policing Conference • 80 Training Workshop: Alternative Dispute Resolution

differently interpreted, was shown. In one Instructors: Jennifer Adams view, a profile ofan old crone appeared; in Mastrofski, Faculty Associate, Center for the other, a back-view ofa young lady with Research in Conflict and Negotiations, long hair was seen. Pennsylvania State University, The participants were asked when University Park, Pennsylvania alternative dispute resolution (ADR) Deidre Levdansky, Executive Director, methods are best used. Based on the case Pittsburgh Mediation Center, Pittsburgh, example, ADR is applicable when there may Pennsylvania be repeat situations involving the same kind ofconflict. This would also include future The goal ofthe workshop was to contacts between the two parties, have an informal, interactive training session irrespective ofthe instant conflict. Other composed offour elements: factors to consider include time frame • "Getting Your Feet Wet" issues, i.e., what can be done now·versus • The Pittsburgh Experience • "Wading in the Water" later. • Where Do We Go From Here? In the Pittsburgh experience, the ("Sink or Swim") trainers contracted with the city of A scenario was presented to the Pittsburgh to provide ADR services. session. Workshop participants were asked Several examples were presented, including what actions a police officer should take to mediation between gangs and police, gangs settle a dispute between a black man and an and schools, and police and other agencies Asian couple who own a convenience store. such as the fire department in same building. The store owners have refused to reimburse Future work will involve police and housing the customer, who has put money into an residents' conflicts. arcade machine that would not work. A second scenario presented by the Instead, they have referred the customer to instructors involved a police officer the company that installed the machine. dispatched to a domestic dispute, involving This is unacceptable to the customer, who two cousins residing together. One cousin is makes some anti-Asian statements. moving her property to a nearby car with the The workshop participants suggested help ofher boyfriend. She appears to be a variety ofresponses, including a personal injured (two-inch cut on hand). The refund from the officer to the customer. boyfriend reports that the cousins have Other suggestions would have had the fought before; he expects they will be back officer ,engage in efforts to mediate the together in a few days but will fight again conflict, possibly having the store owners after that. refund the lost money, calling the machine The workshop participants were owners, or simply separating the parties. asked what the officer should do in The workshop participants were response. Participant answers varied from asked to define conflict. The trainers noted "nothing" to "arrest the cousin who injured that the Chinese character for conflict has the other cousin." In the actual case from two parts that include both opportunity and which this scenario was developed, the danger. Conflict is also affected by officer reported suspicion that drug use was perception. A picture, capable ofbeing involved in the problem. The officer simply kept things calm by helping the first cousin Community Policing Conference • 81 to get her things. The workshop participants viewed factors such as likelihood ofrepeat violence and the need to gather more information to be relevant to the officer's actions. In this example, there was no active conflict. There may have been a need for victim-offender mediation.

Community Policing Conference • 82 Training Workshop: Implementing the Americans with Disabilities Act in Law Enforcement Agencies

indicates loss ofsight although Instructor: Paula N. Rubin, Visiting the person has 20/20 vision; this Fellow, National Institute ofJustice, U.S. constitutes protection under DepartmentofJusuce ADA). Paula Rubin began the workshop by 3. A person is regarded or perceived explaining the protected classifications: to be disabled (e .g., a person who race, color, religion, sex, age, national has received serious burns, or origin, and persons with disabilities. She people who have a drug/alcohol explained that although there are protected addiction but are in rehabilitation classes, there are bona fide occupational or have completed rehabilita­ qualifications under which some jobs may tion). discriminate because ofthe nature ofthe 4. The person is otherwise qualified work. For example, men would not be hired for the job, is able to perform the to model women's bathing suits. essential elements ofthe job, or Under the Americans with meets eligibility criteria to Disabilities Act (ADA), changes to Title I participate in a program. hiring mean that medical exams and In terms ofapplications, Ms. Rubin inquiries cannot be done until a conditional described the types ofquestions that law offer ofemployment has been made. Ms. enforcement can ask on medical history, Rubin pointed o.ut that one ofthe easiest agility testing, drug testing, and other issues ways to protect against discrimination in a pre-offer status. For medical inquiries, lawsuits is to have written job descriptions employers cannot ask applicants about that are distributed to potential job illnesses or medical treatments. She advised applicants, demonstrating a standardized job attendees also to avoid "back-door" application process. questions such as whether the person has a In order to clarify what disabilities driver's license or the number and reason for are protected under ADA, Ms. Rubin days absent. In the first instance, employers explained that any substantial life activity should only ask about a driver's license if that is limited creates a protected disability. driving is an essential part ofthe job. In the She defined substantial life activity as any second case, asking the number ofdays "-ing" word-for example, walking, absent creates what Ms. Rubin termed the hearing, or sitting. Ifany substantial life case ofthe confessing candidate. Ifthe activity is affected by a disability, then the candidate confesses a disability or perceived person is protected under ADA. disability such as drug treatment and then Ms. Rubin outlined the conditions does not get the job, the employer has for protection under ADA: created a potential for a discrimination suit. I . A person has physical or mental Drug testing is permissible during impairment that substantially the pre-offer process. However, Ms. Rubin limits significant life activities. noted that employers should be careful about 2. The person has a record ofan prescription drugs because knowledge of impairment, even if the record is prescriptions could lead to perceived or wrong (e.g., medical record actual discrimination. She advised law

Community Pollclng Conference • 83 enforcement to ask labs only to notify about employer can provide that will make illegal drugs. the person otherwise qualified ( e.g., Agility tests may be given pre-offer, phone amplifier for a deaf person)? as long as a description ofthe test is Is there any reason or defense for not provided in advance and the candidate has accommodating the applicant? One doctor certification that he or she is able to acceptable reason would be significant take the test. For incumbents, the employer financial or other hardship. Another is ifthe must give reasonable accommodation ifthe accommodation would require the employer person is still otherwise qualified and can to fundamentally alter its program. still perform job activities. Ms. Rubin also In conclusion, Ms. Rubin offered an explained that it is important to be consistent easy acronym for the attendees to remember: with light duty assignments. "EQUAL." She suggested that law enforcement • "E" for essential functions ofthe remember several questions when screening job applicants and complying with ADA: • "Q" for qualified individual with a • Does the person have a disability? disability • Ifso, is he or she otherwise • "U" for undue burden or ·direct qualified to do the job? threat • Ifthe person is not otherwise • "A" for accommodation qualified for the job, is there a • "L" for living with disability reasonable accommodation that the

Community Policing Conference • 84 Executive Forum: Law Enforcement Executives Face the Issues

Moderator: Susan King, News Anchor, perspective ofthe media and front-line WJLA Television, Washington, D.C. officials in law enforcement. Ms. King set the stage with a scenario involving a major Participants: city with a new mayor who has promised to William J. Bratton, Police put more police on the street, clean up the Commissioner, Boston, town, and make the city better. The mayor Massachusetts chose a police chief who shares those goals. David W. Brown, Chief of Police, - Unfortunately, the crime rate continues to Tempe, Arizona rise. The news media catches onto a series Sylvester Daughtry, Chief of Police, ofmurders in a diverse, gentrified Greensboro, North Carolina neighborhood. Reporters give the Clarence Edwards, Chief of Police, perpetrator a name: the neighborhood Montgomery County, Maryland stalker. A young woman is killed while A. Tony Fisher, Chief of Police, Takoma walking her dog; her father, a diplomat, goes Park, Maryland to the media and tries to mobilize the Charles C. Foti, Jr., Sheriff, Orleans community, but the murders continue. Ms. Parish, Louisiana King asked panel members what they, as Donna L. Hansen, Chief of Police, Fort police chiefs, would do first. Myers, Florida Commissioner William Bratton Clarence Harmon, ChiefofPolice, St. said he would contact his district Louis, Missouri commander for the area that was Steven Harris, Chief of Police, experiencing the problem and get a sense of Redmond, Washington what was happening in that neighborhood. Elaine S. Hedtke, Chief of Police, He would use that commander to network Tucson, Arizona with institutions there, get the media to Johnnie Johnson, Jr., Chief of Police, understand that the police were working Birmingham, Alabama with the community, and attempt to bring Gil Kerlikowske, Chiefof Police, Fort additional resources into the neighborhood Pierce, Florida to lessen fear. He observed the impossibility Thomas G. Koby, Chief of Police, ofplacing a police officer on every comer of Boulder, Colorado the neighborhood without stripping the rest Robert K. Olson, Police Commissioner, ofthe city and stressed instead reliance on Yonkers, New York community resources. Marty Tapscott, Chief ofPolice, Given the impossibility ofsaturation Richmond, Virginia policing, ChiefJohnnie Johnson stated Fred Thomas, Chief of Police, that, in such a situation, his first meeting Washington, D. C. would be with the press to establish how the Elizabeth M. Watson, Chief of Police, police and the press could work together Austin, Texas instead of as adversaries. He said he would According to moderator Susan also walk through the community, make King, the goal ofthe session was to examine sure his better investigators were on the the idea ofcommunity policing from the

Community Policing Conference • 85 case, and meet with the various groups in the then pulled out. About an hour later, the neighborhood. shooter struck again. She said reporters Ms. King expanded on her scenario, began to wonder whether they should have saying neighborhood residents complained been broadcasting all the details ofthe there was not enough police presence there police plans-evidently, the shooter was and said they wanted a police substation to watching the news. be placed in their neighborhood. Chief Regarding management aspects of Thomas Koby noted that he would take a community policing, Chief Elizabeth different approach. Describing the scenario Watson stated that police training has as a tactical situation that required a tactical always focused on technical and skills response, he said he would ask his training and has skimped on operations staff to develop a plan to address communications and management training. the issue. He added that he would manage She called that focus a disservice to middle the situation as a critical incident, including managers. Police chiefs often carry the managing the press, which he described as message ofcommunity policing to line being sometimes misguided. officers, bypassing middle managers, but Chief Gil Kerlikowske noted that a those managers cannot support what they do police department must warn the public as not understand. Chief Watson observed a soon as a crime pattern is detected and shift from guiding by directive to guiding by should circulate a description ofthe suspect values. Conquering fear and crime requires even ifdoing so jeopardizes an managers who can behave differently from investigation. It is right, he observed, to put the autocratic, control-oriented managers of protection ahead ofarrests. the past. Although a crime wave like the one Chief Clarence Edwards stated that in the scenario calls for a significant police his department undertook community response, Chief Johnson pointed out a policing from the bottom up. Its community pitfall of dropping everything to solve such policing committee consisted of300 a crime. Someone will say, "How come members, including police officers from the you're putting all this effort into solving this lowest level to the highest, plus community crime? When my brother got killed, I didn't members, activists, and representatives from see all this effort put into solving his various branches ofgovernment. murder." Police must balance their efforts Police departments must change their among different crimes. training, Chief Steven Harris observed. Commissioner Bratton observed They need a clear mission, a statement of that, in the past, police would flood the area, values, quality improvement, and cross­ push youths up against a fence, and pat them functional teams. Training in team problem­ down-and might end up alienating the solving methods enables solutions to be community. Now, under community found quickly when a problem occurs. policing, community members understand Private industry, he said, is doing the same that they must be the police's eyes and ears, thing. and the onus offighting crime is not placed Chief Marty Tapscott raised the solely on the police. issue ofwhether community policing is a Ms. King stated that her scenario program or a philosophy. In Richmond, he was based on the Mount Pleasant shooter said, it is considered a philosophy that (Mount Pleasant is a neighborhood in evolves into programs, neighborhood by Washington, D.C.). She recalleq a night neighborhood. It is an attitude that has to be when police stayed in the area in great force, developed in the police department and in

Community Policing Conference • 86 the community. Chief Harmon added that Chief Koby observed that police community policing makes the officer departments must restructure themselves just examine both the present call for service and as GM, IBM, and other companies are doing its implications for having to come back the to get the product they want. Chief Tony next day. Fisher added, however, that community One problem with treating policing cannot be implemented overnight community policing as a program that does and that not every officer will be successful not include every officer on the force, Chief in every neighborhood. Police departments Tapscott stated, is that the actions ofsome must identify which officers work best in officers may counteract the efforts ofthe Hispanic, African-American, and other community policing officers. For example, communities. ifa few officers are practicing community A critical element is the education of policing in a particular neighborhood, and the American public-teaching it that the the next day the department's strike force police have limitations, Chief Edwards go~s to the neighborhood and kicks down observed. The public will have to take more doors and drags people away, the work of responsibility for its own protection and be the community policing officers will be set willing to work with the police and social back tremendously. service agencies to handle crime. Moreover, Chief Harmon added that assigning the public must be made to understand that just a few officers to be community policing police cannot respond to everything. They specialists might encourage the rest ofthe now respond to burglar alarms, reports of force to say, "Let's call the community barking dogs, and other problems that could policing guys," rather than trying to solve be handled differently. problems themselves. Audience member David Community policing means Belluomini, crime prevention coordinator empowerment, Chief Robert Olson said, for the Fresno, California, Police and it means taking risks. What is required Department, asked how to select police is changing an entire culture. People who officers in a way that promotes the future of have spent their whole lives in ranks do not community policing. He observed that drop those barriers easily. There are plenty traditional policing is said to recruit those ofofficers just waiting for the chiefto fail with a spirit ofadventure, while community with community policing so they can get rid policing targets those with a spirit ofservice. ofhim, dispose ofcommunity policing, and Chief David Brown answered that a go back to the good old way ofdoing things. community policing department must look Audience member Bruce Pierce, for people with self-confidence, people associate professor ofcriminal justice at the skills, and communication skills. Recruiting John Jay College ofCriminal Justice in New will look not for brawn, but for recruits who York, asked how police chiefs intended to can talk to people and solve problems. translate community policing to the level of Ms. King asked how a department street officers, day in and day out. Chief can prove that community policing works. Watson answered that community policing Chief Sylvester Daughtry replied that a must start at the top and go throughout an department cannot rely completely on organization. Programs come and go statistics but must survey citizens. Chief because chiefs come and go. Upper and Elaine Hedtke added that ifa department middle managers will decide the future of builds a strong rapport with the community, policing in America by developing attitudes the community may call the police more about problem solving. often. The number ofreported incidents

Community Policing Conference • 87 would then rise, and that rise would actually An overreliance on statistics can be be a sign ofsuccess. misleading. Chief Olson observed that any Ongoing evaluation ofcommunity discussion ofcrime must look at the whole policing is crucial, Chief Brown stressed. community situation. In U.S. penitentiaries, Over the long term, ifa department is not only 28 percent ofinmate~ have high school reducing crime and disorder, it should diplomas, he said, and some schools in U.S. change its tactics. In the short term, to communities have over 40 percent dropout measure success, a department should look rates. However, no one points a finger at the at citizen satisfaction, citizen participation in school superintendent when the crime rate police activities, and employee progress in goes up. Community policing can only community policing. work when all government entities work together.

Community Policing Conference • 88 Plenary Panel: Community Partnerships in American Cities

was in fact heard. There was no reason for Panelists: Beth Hughes, Executive the housing developer to decide carpet and Director, Columbus Housing paint colors and playground locations-the Partnership, Columbus, Ohio residents could decide. When people saw Beverly Watts Davis, Executive Director, that their decisions were listened to, CHP San Antonio Fighting Back of United was able to get them interested in talking Way, San Antonio, Texas about some ofthe more difficult issues. As social services professionals, CHP staff Columbus Housing Partnership expected that residents would want to work (CHP) is a nonprofit developer ofhousing on day care and similar issues. By contrast, that works throughout Franklin County, the real problems were safety, drugs, and Ohio. Part ofa national organization called teenagers. And until the issue ofsafety the Enterprise Foundation, CHP provides could be dealt with, no other issues could technical assistance and funding to come forward. neighborhood-based organizations for CHP met with many adult residents, housing development activities. but the teenagers felt left out. One ofCHP's According to Beth Hughes, CHP first activities was to replace all the believes one cannot succeed in housing complex's locks with secure locks. One of development without looking at the context the teenagers' first activities was to super­ ofa neighborhood. Support for healthy glue all those locks. That act got CHP's families and healthy neighborhoods is a attention. It was not enough simply to work prerequisite for quality, affordable housing. with the adults in this complex; the For a privately held project in teenagers, too, wanted to be a vocal part of Columbus, Ohio, CHP brought together the planning. The teenagers had slightly about 60 organizations, both public and different concerns. They were ashamed of private, to assist a neighborhood that has where they lived. They did not feel safe, seen massive disinvestment and suffers a and they were sad to see their brothers and very high crime rate. CHP's cooperative sisters growing up there. process, called "building communities," was One advantage ofthe Mwanza Place used at an apartment complex called project is that residents had telephones. In Mwa.nz.a Place, named by the residents after other apartment projects or complexes, the the Swahili word for "new beginnings." The lack oftelephones leaves no way for president ofthe city council asked the chief residents to call the police department when ofpolice to assign an officer to work with a problem arises. Every night the "bad CHP in the "building communities" effort. guys" tried to retain control. They did not The neighborhood was under the control of want to give up their turf. Both residents, what the police officer called the "bad guys." because they could see changes taking place, Prostitution, drugs, and gunfire were and the CHP staff were frantic to gain rampant. control ofthe project. Together they worked CHP's first step was to ask residents to improve safety with better street lights, to make some decisions about physical high-wattage front and back porch lights, changes that would take place in their units. and alarms in vacant apartments. CHP Those physical changes would provide assigned a guard temporarily to work nights tangible proof that what the residents said at the project. The police assigned foot

Community Policing Conference • 89 patrols to the neighborhood, and the do. However, CHP deliberately works with residents also provided some guards. very difficult places. Ifit solves problems Throughout the development there, other places may be able to take care process, CHP orchestrated special events, ofthemselves. The process has not been such as cleanups, garden planting, and group smooth or easy, but CHP feels the various trips. The events were initiated by the parties-police, developers, and residents­ residents. In addition, all ofthe teenagers need each other very much. The who said they needed jobs received them. relationship between the Mwanz.a Place Other people in the neighborhood got neighborhood and the police has improved involved. When they saw the changes, they substantially, as has the safety ofthe came over and talked about what the residents. neighborhood used to be like. They Beverly Watts Davis introduced San expressed hope that the neighborhood would Antonio Fighting Back (SAFB}, a continue on its new course ofimprovement. comprehensive community empowerment They said they wanted to invest in their program whose whole strategy is houses now that the neighborhood was partnership. SAFB believes it cannot do to getting better. and for people, but must do with them. If Families began to feel safe. Families everyone is involved, then everyone is that previously would not allow their vested in making a plan work. children outside were now spending time in SAFB focuses on youth, the family, their yards. They perceived the and the community they reside in. Programs neighborhood as safe. The amount ofcrime that work only on community empowerment in the neighborhood dropped so the police, neglect the fact that people go back to too, perceived it as safer. As the amount of families. Unless a program works on vandalism dropped to nothing, the individual and family growth, any gains may developers were delighted. be undone by negative forces in the Once safety issues were taken care community. of, the residents could move on to other SAFB's constituency said its number issues that affected them. They could deal one concern was crime. Neighborhood with drug and alcohol abuse, child and adult residents did not want a stadium or better day care problems, and spouse abuse. schools; they wanted a reduction in crime. The Columbus police played an So SAFB worked with the police and the important part by participating in all the community to develop strategies, including a planning meetings, by assisting the Weed and Seed program. professional staff, and by spending time That program is divided into two with the residents, both adults and youth. parts. Weeding consists oflaw The police also visited the teenagers' school enforcement's interdiction and deterrence and talked to their counselors and teachers. efforts. Seeding consists offoot patrols, CHP has moved on to the next cultural sensitivity training, and community neighborhood. It certainly has not solved all partnering. Each foot patrol officer is the problems at Mwanz.a Place or created buddied up with two neighborhood residents strong, healthy families, but it has made a who actually walk the patrol with the significant difference. The new officer. Those residents introduce officers to neighborhood has a high incidence ofarson community residents and maintain a and substance abuse. CHP could have secondary intelligence network. The chosen an easier place to work with, as officers began to see that the people in the indeed the police suggested the organization neighborhood were not the criminal

Community Policing Conference • 90 elements they consistently saw at night. The the same time, and there was not one fight or officers are now well loved. Almost every act ofvandalism. time they set out on foot patrol, someone SAFB has been in operation almost brings them a cake or lemonade or plays two years. During that period, it has basketball with them. This is partnership at reduced crime by 52 percent. People its most basic level. Still, SAFB takes care actually know who their neighbors are now. not to make the officers feel they must The military is a tremendous become social workers-they are law resource to couple with law enforcement. enforcement officers. Residents at the Springview Public Housing SAFB is also instituting safe havens, Authority wanted to turn a large vacant lot which are secure places (such as school into a baseball field. The military brought in buildings) to which young people and its equipment, and, working with the families can go. Although it is a simple residents ofthat public housing concept, it is difficult to implement because development, built a baseball field. school systems like to close down in the The secondary intelligence network afternoon. Area youth, whom SAFB treats developed by residents has defeated a as consultants, said youth crime could be tremendous number ofcrack houses. curbed ifthere were places where young Traditional informants sometimes give people could go immediately after school police unreliable information, but the until about 9:00 p.m. and, on weekends, residents actually go out now and write between 10:00 p.m. and 1:00 a.m. down license plate numbers and descriptions Children tend to know everything ofsuspicious cars and people. Community that is going on: crime, drugs, and who is residents have even set up shifts and doing what where. Therefore, SAFB hired videotaped crack-house activities on a 24- 56 young people to become consultants to hour basis. In one case, when residents United Way. They came up with a full turned over their evidence to the U.S. strategy for summer and fall activities. One attorneys, an entire shopping center was oftheir activities was "Dive-In Movies," confiscated. That shopping center is now which the youth described as a gang and being turned into a teen center. drug prevention program. They got the The intelligence network has turned Police Athletic Leagues to donate inner up about 30 crack houses. The military will tubes, which the youth blew up, put in the demolish all 30, and the business pool, and sat in while watching videos all community is going to do two things with night. How is that gang and drug the lots. The lots will first become prevention? Basically, it is hard to use community gardens. Soon after, through the drugs while swimming, and it is hard to efforts ofan SAFB board member who is fight in the water. The organizers charged also a bank president, affordable housing 25 cents admission and ran the concessions will be built on those sites and financing will themselves. With the profits, they attended be set up so that people in the neighborhood youth leadership conferences. can own their own homes. An older group came up with The majority ofthose future Midnight Basketball. To keep young men homeowners come from public housing. aged 14 to 21 out oftrouble, an activity was The public housing authority is paying the needed between 10:00 p.m. and 1:00 a.m. construction costs, SAFB is paying the The San Antonio Spurs supported the architectural fees, the bank is arranging the program. During the final basketball game, financing, and the military is doing the 15 gang groups were present at the gym at demolition.

Community Policing Conference • 91 The wonderful thing is that p~ople have become inspired because they can see things changing. The school system reports that, because the military has provided 320 mentors to middle-school students in the area, school vandalism is down 40 percent, the absentee rate has dropped by 30 percent, and the test scores in those schools have improved 20 percent.

Community Policing Conference • 92 Community Policing and Criminal Justice System Partnerships

• Develop more meaningful case Moderator: Andrew L. Sonner, State's dispositions and increase Attorney, Montgomery County, accountability. Maryland • Increase the feedback provided to Panelists: Joan E. Jacoby, Executive police about cases. Director, and Heike Gramckow, The target area has many working Research Associate, Jefferson Institute class residents and many community groups. for Justice Studies, Washington, D.C. Community leaders played a central role in project development, and the project is Jay M. Cohen, Deputy District Attorney, designed for local problem solving. Kings County, New York, District According to Ms. Sviridoff, the Manhattan Attorney's Office District Attorney's Office has not supported the Midtown Court and has developed Michele Sviridoff, Director of Research, another array ofsanctions for Midtown Community Court Project, The misdemeanants. Special activities under the Fund for the City ofNew York, New auspices ofthe Midtown Court will include York a community newsletter; suggestion box; Michele Sviridoff discussed the ride-along program for judges; community Midtown Court Project, which will begin in service projects that include graffiti painting, September 1993, in Manhattan, after two neighborhood cleanup, and soup kitchens; years of planning. The Midtown Court will and community meetings. handle misdemeanors and ordinance A pretrial assessment will be violations only, especially those that affect conducted ofall misdemeanants and will the quality of life ofmidtown residents. The include assessments ofsubstance abuse , target area includes the Times Square, mental health, and homelessness. Clinton, and Chelsea neighborhoods and Assessment results will be made available to runs from 29th to 59th Streets and from a resource coordinator as well as to judges Lexington Avenue to the Hudson River. and attorneys. The resource coordinator will The court is located on 54th street. advise the judges about treatment options, The Midtown Court Project is a the availability oftreatment slots, and three-year demonstration project and has the related matters. Misdemeanants may be following goals: assigned by the judge to high or low levels • Make the court more aware of ofsupervision. Those under a high level of problems that matter most to the supervision will start community service community. immediately; others will begin later in the • Implement constructive and visible week. In addition, five counseling rooms responses to these problems. and other flexible space are available for • Increase public confidence in the community-based service providers, with the court system. aim ofimmediately linking arrestees to • Reduce jail crowding. services. Daily counseling will be provided • Send a strong message to juveniles for several groups, including prostitutes, that the public will not tolerate runaways, and persons with AIDS and HIV­ criminal behavior. positive test results.

Community Policing Conference • 93 The Midtown Court Project is assistant district attorneys (ADAs) assigned considered a testing ground, and the to each zone to prosecute felonies. Each National Center for State Courts has been zone encompasses four or five police working with the project. The Midtown precincts, has six or seven judges, and has Court is one ofthe first, but not the only, an ADA team ofapproximately 30. ADAs community courts. Other program elements meet regularly with precinct commanders. being explored include mediation programs Targeted crimes are felony robbery and an assessment ofwhich offenders and drug trafficking, and considerable should be fingerprinted. By the end ofthe emphasis has been placed on attacking crime test period, researchers hope to answer through the use ofcivil remedies. In March several key questions: 1993, ADAs in the zone that includes the • What happens when the spotlight is 72nd precinct (New York City's model focused on the problem of community policing precinct) expanded misdemeanants? their scope ofwork to include misdemeanors • What role do community groups and quality oflife problems. actually play? One special project is Project • What happens to the courtroom Legalize, which involves ADAs and other roles, particularly the judge's role? criminal justice personnel adopting • What happens when services are co­ Brooklyn fifth grade•classes. ADAs spend located with the court? Does 15 hours per month teaching students about compliance increase? Are tensions criminal justice issues through role play, between social service and criminal field trips, mock trials, and other activities justice personnel increased or that involve parents and residents. Project relieved? Legalize served 58 classes the first year, 126 Jay Cohen noted that cities still have the second, and 248 the third, with a goal of enormous crime problems despite increases adopting every fifth grade class in Brooklyn. in criminal justice resources. The country Another special project is "Drug has not won a war on drugs, or even fought Treatment Alternatives to Prison," which is it effectively. Compared to 1965, three designed to serve nonviolent, second-felony times as many youth ages 10 to 17 are being offenders. Successful completion ofa drug arrested for violent crimes. Gunshots are the treatment program results in felony charges second leading cause ofdeath among males being dropped; failure to complete treatment ages 15 through 19, and the leading cause results in full prosecution and mandatory among African-American males in this age state prison time. Two hundred persons group. In New York City today, there are have been assigned to the program. As of four times as many assistant district August 1993, 60 percent were either still in attorneys as in 1975 and 1,000 more police treatment or had successfully completed it. on the streets. The jail population in 1980 The annual cost ofthe program is $1. 7 was 37,000; today it is 82,000. The annual million for every 100 defendants. cost ofhousing one prisoner in jail is Finally, a community court is now in $58,000. progress in Kings County and is located in Mr. Cohen explained how the zone that also includes the 72nd precinct community based prosecution, called zone and the Red Hook housing complex. The prosecution, works in Kings County court handles trials and dispositions as well (Brooklyn). Kings County has 2.5 million as arraignments. Goals include the residents. The prosecutor's office has following: designated five zones, with a team of

Community Policing Conference • 94 • Provide a comprehensive, intensive, selected target areas, some of which have community prosecution program for storefront police offices. The effort has a public housing residents. 12-year history but is considered to be still • Provide a video link between the evolving. To date, lieutenants and sergeants community and various parts ofthe have received only a minimum oftraining, criminal justice system. and the police planning unit is not involved. • Provide services (e.g., health care) The prosecutor is considered by the on site. researchers to be supportive, but community • Implement community service policing is not a combined police/prosecutor sentences within the Red Hook area. effort. • Develop other programs for The purpose ofthe Portland offenders and their families. community policing approach is problem Joan Jacoby discussed some solving, according to the researchers. All preliminary findings ofan NU-sponsored patrol officers are expected to be involved in research project designed to explore the community policing, and the crime analysis foliowing: unit is designed to support it. In addition, • The impact ofcoll)Jllunity policing each ofthe city's 89 neighborhoods has a on the criminal justice system neighborhood liaison officer to conduct • The impact ofthe criminal justice longer-term follow-up on problems. Seven system on community policing "cluster officers" are in charge ofseveral • New directions for research and neighborhoods each, with the objective of evaluation gaining a broad view ofcommunity Four sites were selected for intensive problems. Portland is in the third year ofits investigation, and a telephone or mail survey five-year community policing plan. The will be conducted ofother jurisdictions. A prosecutor is proactive and operates a final report will be prepared in spring 1994. community prosecution program, with some Dr. Heike Gramckow reported on assistant district attorneys involved in the four sites: Montgomery County, community problem-solving efforts. Maryland; Tucson, Arizona; Portland, Colorado Springs also has a focus on Oregon; and Colorado Springs, Colorado. problem solving and views community The Montgomery County policing as requiring a decentralized community policing effort is in the early approach that involves all ranks, units, and implementation stage, and the focus is on programs in the department. Colorado problem solving. Special units were formed Springs is in the second year of its five-year in each district, and all patrol officers are community policing plan. The prosecutor is assigned to permanent beats. The effort is characterized by the researchers as a supported by the police planning unit, responsive partner who operates a decentralized crime analysis, and the district neighborhood justice center for the commanders. The prosecutor is assuming a mediation ofcases (including some felony proactive leadership role. He began cases). community based prosecution two years ago Ms. Jacoby discussed some and makes personnel assignments that preliminary findings on the effects of correspond to the police districts. community policing on the criminal justice Community policing in Tucson is system. In jurisdictions with community geared to improving community relations, policing, the trend is for a greater emphasis problem identification, and referral. It is on enforcement ofordinances and codes, the supported by officers assigned to patrol in juvenile justice system, and the development

Community·Policing Conference • 95 ofnew roles for prosecutors. There may but also court administrative staff, the city also be changes in pretrial release programs. attorney's office, the city budget office, and probation, and the role ofpublic defenders. city regulatory agencies will need to With regard to legislation, a greater focus is increase their levels ofcooperation. likely on juvenile laws, parental neglect and In response to a question about the abuse, domestic violence, and ordinances impact ofcommunity policing on the private ( e.g., nuisance, trespass, and landlord­ sector, Ms. Jacoby noted that in Portland, tenant). In terms ofpolicy changes, police and prosecutors provided training for prosecutors will be required to review their security guards, and the chamber of priorities. For example, the public may commerce donated funds to support a insist on prosecution not only ofprostitutes position in the prosecutor's office. In but also ofthe persons who solicit them. response to comments by Ms. Sviridoff, Similarly, the courts (and many other Barbara Jones ofthe Manhattan District agencies) will have to become more Attorney's Office said the issue is not accessible and accountable, and interest in whether diversion for misdemeanants should mediation and community outreach (e.g., be done, but how it should be done. Her neighborhood justice centers) is likely to office has a community affairs unit (the staff increase. Decentralization ofpolice are not lawyers) that worked with the police operations and assignment ofofficers to to start a misdemeanant diversion program. permanent beats are among the major She noted that the Midtown Court is not a organizational changes police departments trial court, and that the cases ofpersons who will need to consider in light ofcommunity decline to plead are transferred downtown. policing goals. Finally, a high degree of Two audience members recommended that coordination among agencies will be the Jefferson Institute report also discuss the necessary. Not only police and prosecutors, downside ofcommunity policing and the likely sources ofopposition to it.

Community Policing Conference • 96 Drug Market Analysis

identifying boundaries oftargeted areas; (2) Moderator: Chuck Wexler, Executive to put in place a computerized, location­ Director, Police Executive Research based system for inquiries; and (3) to Forum, Washington, D. C. evaluate the effect ofvarious innovative law Panelists: Lorraine Green, Assistant enforcement strategies. The project tested a Professor, Northeastern University, traditional-approach control group against Boston, Massachusetts innovative efforts and arranged for long­ term follow-up. John Eck, Associate Director for Before the development ofDMAP, Research, Police Executive Research drug arrests were made based on Forum, Washington, D. C. surveillance, search warrants, etc. The officers relied on their memories, J. Thomas McEwen, Principal, Institute experience, and manual background checks for Law and Justice, Alexandria, Virginia on the suspects to proceed. They did not Dr. Chuck Wexler described some work with the community in any ofthis. ofhis previous experience in working with The planning for DMAP included an the Office ofNational Drug Control Policy existing minicomputer environment (ONDCP). He had been involved in equipped for local mapping. Staffers investigating both the supply and demand arranged for it to be easy to custom design sides ofthe drug problem, examining effects and change. Then they went to the ofprevention as well as treatment. ONDCP detectives in the narcotics division and came to the conclusion that, although it does asked them what they wanted in such a not necessarily know what works, it does system. Their responses included the know that every action causes a reaction. following: For example, stricter border control might • The system should not be "locked cause lµgher prices for the drugs or greater away in an office." purity. There is a need for more and better­ • The system should be up-to-date coordinated information. within one or two days ofcurrent Many agencies are involved in this events. struggle. The Bureau ofAlcohol, Tobacco, • Detectives should be able to get and Firearms, the Customs Service, and the information on suspects such as: Drug Enforcement Administration, for Suspect's name(s) example, all have different perspectives and - Prior arrests different information. But ifone wants to - Registration/Social Security know where, how, and when a particular Number neighborhood drug dealer is functioning, - Vehicle and what impact different police models will - Alias have on this problem, it is necessary to go to - Firearm registration that specific neighborhood. - Name ofdrug involved Dr. Lorraine Green described the - Cohorts in previous arrests Jersey City Drug Market Analysis Project - Provider ofbail in previous (DMAP) as having three central goals: (1) arrests. to develop a systematic process for

Community Pollclng Conference • 97 • The system should be place­ encouraged proactive work and specificity specific, showing rather than reactive work (response to calls, - Places where a person was etc.). known to sell or buy The examples he presented included Descriptions ofhouses where the following: drug sales occurred in the past • Coin-operated machine break-ins, - General information on mapped to show locations of "clientele" affected merchants Hours ofoperation • Thefts ofHonda Accord - Most common methods ofsale automobiles, mapped in relation to ( drive up, third person, hand-to­ the sports stadium hand) • Narcotics arrests, mapped in relation - Types ofdrug sold to the trolley lines - Physical layout ofthe area. • Boundaries ofthe "Weed and Seed" Lieutenant Belucci ofthe Jersey City regions and the radius around Police Department's narcotics division was a schools within them computer buff and designed the menu to • Car prowl crimes, mapped to show drive the detectives' inquiries. The staffalso seasonal relation to behavior of built in a "Data Reset" option to replace any citizens/tourists accidentally corrupted database, after an These tools also allow comparison of inexperienced officer made inquiries and different arrest methods-where they occur corrupted the existing one. None ofthe and what their relative effectiveness is. One detectives asked for information relating to neighborhood might show a predominance the community in general. The maps they of search warrant arrests, while another developed for their crackdown used alternate might show predominantly buy-busts or (false) names for streets on the map to avoid "knock and talk" arrests. discovery oftheir plan by scouts ofthe drug Dr. Thomas McEwen provided a organizations. The detectives came up with progress report on computer mapping other good ideas for the mapping as well, applications developed by the five DMAP such as placement ofone-way streets. projects. These projects were housed in the The implications ofthis effort for police departments at the sites, and a grant community policing lie in the important requirement was that each project include a initial step ofthinkingplace (neighborhood) research organization. The five sites and rather than person (suspect). It was also a research organizations under DMAP are San very good operational tool for the front line Diego, California, with Police Executive and for crime analysis. Research Forum; Pittsburgh, Pennsylvania, San Diego was one offive sites for with Carnegie Mellon University; Kansas the DMAP demonstration. John Eck · City, Missouri, with Crime Control Institute; demonstrated the kinds ofmapping products Jersey City, New Jersey, with Rutgers available in San Diego. There were spot University; and Hartford, Connecticut, with maps showing placement ofgangs, shooting Q.E.D. Corporation. locations, and addresses. There were Each site has been operating for colored maps with shading, showing approximately four years. Each developed patterns ofdifferent types ofcrime, such as working definitions ofdrug markets and car theft vs. drug sales. The maps brought gathered extensive information about its the data into a more usable form of markets. Four sites conducted enforcement information for law enforcement. It experiments based on their increased

Community Policing Conference • 98 knowledge. Four sites also developed beneficial in all four steps ofthe SARA computer mapping capabilities to assist in problem-solving model (scanning, analysis, their understanding ofdrug markets. The response, and assessment). In particular, departments used commercially available computer maps have identified geographic software (Maplnfo or Arclnfo) to support areas with problems that could be addressed their mapping capabilities. by problem solving and community The Institute for Law and Justice policing. Maps have also been useful in (ILJ) has received an NIJ grant to develop a determining the effects ofcommunity series ofreports that synthesize the policing activities. experiences ofthe five DMAP sites along A specific application under with mapping applications from other community policing concepts at two sites selected sites across the country. These will has been a comparison between drug dealing include a technical guide on implementing locations identified by patrol officers and computer mapping systems, an applications those identified by citizens. Citizens call guide on key mapping applications, a report into the police department to report locations on organizational change and computer where they suspect that drug dealing has mapping technology, and a report on how been occurring. Patrol officers also report mapping techniques can be used in locations where they have observed drug interagency working groups. Other reports dealing. A map provides an improved will be identified as the project progresses. picture ofdrug markets by showing these The five sites have developed several locations with different symbols for the two interesting mapping applications. For groups. The sites did not find a strong example, three sites use computer mapping overlap between the two groups oflocations. to identify "hot spots" ofdrug sales and Correlations between the DMAP other criminal activities. These maps sites are not precise. Mapping capabilities usually employ different sized circles to show different degrees ofcomplexity. reflect the amount ofactivity in a selected Access to the systems also varies; ~e more geographical area. The mapping software complex systems require greater training and has considerable flexibility in selecting more limited access. areas, which can range from a single block The most time-consuming procedure to the entire city. Maps ofthis type have in setting up a mapping system is the also been used by the sites to determine development ofthe geographic base file displacement effects from drug enforcement with coordinates. TIGER files may be used efforts. The maps give a visual picture of (from the U.S. Bureau ofCensus). These how drug activity moves as a result of frequently have a high error rate ( up to 30 increased street-level drug enforcement. percent error) and may require cleanup. With regard to community policing, Other agencies might also have geo-based computer mapping has been found to be files that could be used.

Community Policing Conference • 99 Family Violence: Child Abuse and Community Policing

The study found _that black, male Moderator: Cathy Spatz Widom, abused or neglected children have a much Professor, Criminal Justice and higher rate ofsubsequent juvenile arrest than Psychology, School of Criminal Justice, any other group. The likelihood ofgetting State University of New York at Albany arrested for a violent crime does not rise Panelists: Debra Whitcomb, Senior nearly so much for abused or neglected Research Associate, Education females and whites. Pure neglect (that is, Development Center, Inc., Newton, failure to provide food and clothing) without Massachusetts physical abuse was also found to increase the likelihood of later arrests. Ronald C. Laney, Acting Director, The implications ofthe study were Missing and Exploited Children threefold. First, early intervention in abuse Program, Office ofJuvenile Justice and and neglect cases is vital to stopping later Delinquency Prevention, U.S. juvenile and adult crimes. Second, neglect Department ofJustice must be attacked at the same time as abuse. Neglect is three times as common as Bill Walsh, Lieutenant, Dallas, Texas, physical and sexual abuse. Third, violent Police Department behavior need not follow abuse and neglect. People say that violence begets In fact, the majority ofabused and neglected children studied did not later commit crimes violence. How true is that claim? What ' other factors affect whether an abused or and not all criminals were abused or neglected child will become a criminal neglected as children. adult? In a child abuse case, Debra In 1988, Dr. Cathy Spatz Widom Whitcomb reported, ifthe number ofearly began a study that identified a large sample interviews ofthe child is minimized, the ofcases ofchild abuse and neglect from 20 child can perform adequately in the years before. Subjects were classified courtroom. An investigation ofchild abuse, according to their age when the abuse or therefore, does best ifthe different parties­ neglect occurred: birth to three years, four to law enforcement, prosecutor, child five years, and five to 11 years ofage. To protective services agency workers, witness overcome data problems, the study used a assistance staff, and others-work together, control group that was matched closely with not in parallel. the experimental group for age, sex, race, Some cities use multidisciplinary teams to deal with child abuse. Huntsville and social class. The findings should ' therefore reflect the effects ofabuse and Alabama, for example, has a children's neglect regardless ofage, race, sex, or social advocacy center where all the parties class. mentioned can work together in interviewing The study found that being abused or and helping the child in a home-like neglected increases the likelihood of atmosphere. juvenile arrest by about 50 percent. The community policing philosophy Nevertheless, two-thirds to three-quarters or gives police an opportunity to prevent child more ofabused and neglected children are abuse. Police can take the following steps: not arrested as juveniles. • Work with neighborhood groups to monitor the whereabouts ofknown sex offenders.

Community Policing Conference• 101 • Work with runaway programs to see • Little children are physically unable ifpeople are abusing those children. to defend themselves or to run • Work with missing children away. programs. • Victims may not want offenders to • Work with ethnic groups that do not be jailed. feel they are a part ofthe • Victims can be manipulated to feel community. that the offense is their own fault. • Enlist the community's aid in Child abuse is a community keeping an eye on children. problem-that is, all agencies play a role in • Work with schools to find combating it. It is not solely a criminal, alternatives to corporal punishment. medical, or social problem. • Develop a collaborative crisis Better approaches to combating child intervention team. abuse and neglect include several Ifcommunity policing consists of techniques. Written protocols for co~peration between the police and the cooperation between schools and the police community to improve the quality oflife, help bridge the gap between those two then child abuse prevention is an ideal groups. Police can help develop a wider objective for community policing. Ronald community awareness ofchild abuse by Laney described police training programs in speaking to doctors, parent-teacher which the Office ofJuvenile Justice and organizations, and citizen groups about the Delinquency Prevention (OJIDP) has been signs ofchild abuse, and when and to whom teaching police about the signs ofchild they should report those signs. abuse. The training encourages police, Police can also educate the public when they are in a household, to take a look through the media. One way is to give at the children there and make any television news reporters the opportunity to appropriate referrals to community agencies. interview the police for a story that ties in The training also teaches police how to spot with a televis~on program on abuse. That signs ofabuse, although any investigations gives the police an opportunity to tell ofchild abuse must still be carried out by citizens what they can do about abuse and to specialized investigators. OJIDP also encourage phone tips. teaches interviewing and interrogation. In addition, police departments can OJIDP asked police officers in its train fire fighters, paramedics, and police training program how many calls for service officers to look for signs ofabuse and are related to juveniles, either as perpetrators neglect. For example, ifan investigator is in or as victims. The officers said as many as a burglary suspect's house and notices toys 50 to 70 percent ofcalls fell into that and pictures ofa type that children like, the category. investigator may have stumbled onto a Lieutenant Bill Walsh reported that person who lures children to the house. child abuse and neglect are particularly Police also must be certain to attempt to difficult to detect and investigate. Among identify additional victims and additional the difficulties are the following: offenders in each case. • Usually there are no witnesses to the Numerous red flags may point to crime. possible child abuse. When an adult is • Disclosure by victims is often arrested with a child who is not his own, the delayed and partial. police should talk to the child to try to ascertain the nature ofthe relationship. Also, ifburglary charges are dropped

Community Policing Conference• 102 without reason, a molestation case may be will not be uncovered. present. Often a child escapes a molestation Another step police can take is to relationship when he grows older and takes send a letter to all local film developing labs revenge on the molester by burglarizing his telling them their legal obligation to report house. When the molester finds out the any child pornography they might see. The suspect is one ofhis former victims, he letter should tell them what to look for and drops the charges so their past relationship whom to call.

Community Pollclng Conference • 103 Community Policing and High Risk Youth

related crimes had drawn self-esteem from Moderator: Marty M. Tapscott, Chief the family and school but not from peers. of Police, Richmond, Virginia, Police Among males arrested for gang-related Department crimes, self-esteem was more closely related Panelists: G. David Curry, Associate to peer relationships than to family or Professor, Department of Sociology and school. Of 249 African-Americans, those Anthropology, West Virginia University, with no arrests had also drawn self-esteem Morgantown, West Virginia from all three sources. Males arrested for non-gang related crimes were below average Adele V. Harrell, Senior Research in school achievement and peer relationships Analyst, Urban Institute, Washington, but rated higher in family relationships. D.C. Those arrested for gang-related crimes scored very low in factors related to family Alexander N. Luva/1, Second Deputy and below average in measures related to Chief/Liaison, Detroit, Michigan, Police school and peers. Department Dr. Curry also talked about a This panel focused on strategies for national assessment oflaw enforcement that working with at-risk youth. The panelists examined what police know about gang reported on research efforts, intervention crime and identified law enforcement programs, and police outreach programs. strategies. Based on official police records, Dr. G. David Curry first described data he determined that there are 4,881 gangs collected during a longitudinal study for the being tracked and 249,234 gang members. U.S. Department ofHealth and Human The primary strategies included suppression, Services. social intervention, organi?.ational change, The focus ofthe study was to track community organi?.ation, and provision of youth involvement in gangs and to examine opportunity. According to Dr. Curry, sources of self-esteem. The study was providing youth with opportunities seemed carried out in four schools in minority to be the number one factor in preventing communities. Researchers tracked African­ gang activity, while community organi?.ation American and Latino males aged 12 to 16. was second. Strategies that did not work or The study began in 1981 and by 1992, 31 had a negative effect were identifying gang percent ofthe Latino males being tracked members and working with the media. had been arrested. Ofthis 31 percent, 44 Deputy Chief Alexander Luvall percent were arrested on gang-related provided detailed information about Detroit charges. Fifty-two percent ofthe African­ Police Department programs that promote American males in the study were arrested, positive interaction between the police and ofwhom 51 percent were arrested for gang­ youth. He noted that police are increasingly related crimes. asked to foster such interactions. In Dr. Curry noted that the response, the Detroit Police Department hypothetical sources ofself-esteem works citywide with 115,000 youth ranging measured in his work were family, school, in age from 4 to 18. and peers. Of 105 Latinos, those who were One ofthe programs that Detroit is not arrested had drawn self-esteem from all operating is a school-community patrol three sources. Those arrested for non-gang squad, under which the police train students to patrol school areas. The students look for

Community Policing Conference• 105 suspicious or questionable people and report • Family them to police. Deputy Chief Luvall noted • Individual: poor school that this program was developed in response performance, peer association, etc. to criminal sexual assaults against young The services the youths receive children in the city. He said that to date, include family services, educational 4,000 students have received training on services, after-school and summer activities, ethics, crime prevention, observation mentoring, and incentives. Community techniques, and other topics. policing in the target area, enhanced drug Deputy Chief Luvall also described enforcement efforts, criminal and juvenile the junior police cadet program. This justice system intervention, and coordinated program is designed for high school juniors case management systems contribute to the and seniors who want to become police program. officers. The youth are chosen from both Dr. Harrell reported that the public and private schools to receive 40 evaluation ofthe program includes quasi­ ho':lfs oftraining at the police academy. experimental and experimental impact These youth then work at the police analyses that will occur over several years. department, patrol in and around their She provided information on preliminary schools, walk elderly citizens to and from observations ofthe community policing the bank or store, and perform other component. One ofthe problems that has services. The youth are paid a daily rate of been plaguing the program is that the police $10 with $5 for lunch. departments and the case managers have not Other efforts include an explorers been sharing information because of program for youth aged 14 to 20; training on confidentiality issues. Dr. Harrell self-esteem and self-defense; and crime explained that police departments must be prevention programs that include the Blue involved in joint planning in order to Pigs, a band formed by three crime facilitate this information exchange. For prevention officers who perform for youth example, in Bridgeport, Connecticut, the ages 3 to 18. The Blue Pigs put on 114 community police officers are co-located programs for 46,000 students in 1992. with the case managers so that the youth are Detroit also has a summer jobs program for able to work with both the managers and the which it received 30,000 applications last officers. year. The SIHRY program also depends Dr. Adele Harrell discussed the on a leadership commitment to the longitudinal evaluation ofthe Strategic community policing effort that begins at the Intervention for High Risk Youth (SIHRY) highest levels. She indicated that regular program. The SIHRYprogram targets at­ contact and interaction between police and risk youth, ages 11 to 13, for intensive others involved in the program is essential. intervention. The program is designed to Further, police departments and case address several risk factors: managers may need written policies on the • Environment: physical location and types ofcontact that can be made and the social and economic conditions types ofinformation that can be exchanged.

Community Policing Conference • 106 Partnership Panel: U.S. Department of Health and Human Services

services. The prevention ofcrime is Moderators: Peter Edelman, Counselor intertwined with drug abuse prevention. to the Secretary, U.S. Department of CSAP is engaged in a number of Health and Human Services criminal justice related initiatives. There is Ruth Sanchez-Way, Director, Center for a New England coalition for coordination of Substance Abuse Prevention effort and information sharing. CSAP recently met with 350 police chiefs at a May Panelists: Howard Hughes, conference. CSAP, the Drug Enforcement Executive Director, Boston Against Administration, and 25 California police Drugs, Boston, Massachusetts chiefs are another group. There is the Southwest border prevention initiative. Marilyn Wagner Culp, Executive CSAP is also funding Head Start training Director, Miami Coalition for a Drug­ workshops as part of Weed and Seed. This Free Miami, l!niversity of Miami, Florida involves teachers and parent coordinators. Training manuals will be published. Phyllis Gervais-Voss, Project Director, Marilyn Wagner Culp introduced La Plata County Hospital District the Miami Coalition, which has 2,300 Prevention Partners, Durango, Colorado volunteers. It began in 1988 with a group of Peter Edelman remarked that local business leaders and university partnership success requires a public ·role. presidents. Stimulated by articles in the We need to empower the community Miami Herald, the president ofthe through partnerships. The drug abuse fight University ofMiami spearheaded the effort begins with prevention. Prevention is not an to have business leaders sponsor a drug isolated issue. For example, it goes with prevention effort. Once a commitment was efforts to reduce violence. It means made, the group spent eight months on rebuilding communities rather than strategic planning, using a task force individual "clients." The Department of structure. The consulting firm ofArthur Health and Human Services (HHS) views Andersen detailed two consultants for each violence as a public health problem. In this task force. The coalition began with a focus context, a prevention approach is required, on illegal drugs and has since expanded to rather than the more traditional medical other substances: alcohol, cigarettes, and model with a "cure." Violence is a public steroids. health problem because ofthe costs to the One example ofa coalition project is health system to treat results ofviolence. the POP (Push Out Pushers) program that is One recent study found that 20 percent of led by the Urban League in a defined area of Medicaid costs are substance abuse related. the city. The coalition brought together At HHS, community partnerships are religious leaders, small businesses, and only partly funded. citizens. A foot patrol was established. The Dr. Ruth Sanchez-Way indicated coalition got the telephone company to that the Center for Substance Abuse change the telephone booths to use rotary Prevention (CSAP) believes prevention phones (to foil pagers). A drugmobile is works when it is community-based, used at schools. Results included collaborative, and tied to the full range of demolition of 52 buildings and securing of three vacant lots. A tracking system was

Community Policing Conference• 107 developed for apartment rentals by d~alers. structure brings together law enforcement, A total of360 abandoned autos were prosecutors, judges, business, and youth in a removed from the area. The coalition has task force format. The Durango area is a since expanded the area served by the major tourist site. Ranching is the second program. most important industry. lts population is The coalition works with the police. 32,000, ofwhich 20,000 are in Durango The police made a priority ofenforcing the itself. Tourists nearly double this population Drug Free School Zone law. Schools asked in summer. The population is 84 percent parents to make signs for drug-free zones. Anglo, 11 percent Hispanic, and 5 percent To aid the law enforcement action, the Native American. Alcohol is the drug of media helped to set up hot lines to get tips choice in the area. Underage drinking laws on pushers. The PTA informed residents were not enforced thoroughly, since and their children ofthe enforcement drinking was widely accepted behavior. The success. project worked with the prosecutor to Howard Hughes described Boston develop alternative sentences. Media Against Drugs (BAD), a program funded by presentations about the project have made private businesses. BAD was started in youth more aware. The project has also 1986 after the mayor asked the city chamber worked with the Ute reservation to limit ofcommerce for help in fighting crack. alcohol at the tribe-run gambling casinos. BAD was set up to work in 16 target During the closing discussion, Ms. neighborhoods. In each neighborhood, a Gervais-Voss noted that the Miami team worked with local businesses. Federal coalition is working on a plan for housing funds also supported this neighborhood development. Law enforcement works with effort. Calls to local BAD offices were code enforcement (nuisance abatement) turned over to the police. BAD and the against crack houses. In the past three years, police developed films on drug problems, the police have knocked down 400 houses. including one on "ice." The coalition is working with the Urban Phyllis Gervais-Voss reported on League to develop the empty lots after CSAP's project in Durango, Colorado. demolishing houses. Under state law, 15 CSAP funds became available in 1991 to percent ofseized funds must go to supplement state funds. The project community groups such as the coalition.

Community Policing Conference• 108 Training Workshop: Policing Immigrant Communities

as trouble. The adult head ofthe household Instructors: David Yang, Community is seen as not being able to control his Service Officer, St. Paul, Minnesota, family. Police Department The Southeast Asian immigrants are Billy Sifuentes, Neighborhood Center now faced with living in a society that has Police Officer, Austin, Texas, Police substantially different values, standards, and Department culture. These immigrants are having a difficult time dealing with this change. The Southeast Asian. Officer David community police officer must understand Yang explained that some jurisdictions have the culture ofthe Southeast Asian had a major influx of immigrants from immigrants when making contact with them.· Cambodia, Laos, Vietnam and other Most adults are very respectful and law­ countries of Southeast Asia. These people abiding. It appears that Southeas~ Asian are having a difficult time being assimilated youth are responding to the change into our society. This population has had differently. They are becoming westernized. many traumatic experiences. For example, This assimilation creates conflict within the the Pol Pot regime killed over 6 million family structure. It is important for the people; some parents killed their children to officer to take time to talk with the adults; keep them quiet so as not to expose their otherwise it will be seen as being impolite. hiding places; and some survived re­ Officers should make every contact an education camps where people were tortured educational one, trying to explain the and killed. Unfortunately, we tend to different roles and expectations. Remember, stereotype these immigrants because they these immigrants are concerned about look different and speak a number of physical retaliation against themselves and languages that very few police officers can their families, so they will be very hesitant understand. about singling out a perpetrator or even a Landing in the United States is a witness. culture shock for most Southeast Asian Police Response. The police immigrants. Many come from rural department should begin culture awareness communities without running water, during in-service and recruit training. Have electricity, toilets, etc. The police role in some ofthe immigrants discuss their culture these countries is that of an enforcer, one and their way ofseeing the community, and who does not patrol the streets and has little describe the government service delivery contact with the people. Citizens are systems to them. The department should afforded very few civil rights. Laws are assign two or three employees within the manipulated through power and corruption. department to make community contacts and Their criminal justice system doesn't revolve connect with other police departments who around due process or a presumption of have a significant Southeast Asian innocence. Their communities are very immigrant population (e.g., California, closed societies based on tradition. The Texas, Georgia, North Carolina, Wisconsin). people are much affected by rumors. The The individual community policing family is supposed to handle its own officer assigned to the area with a Southeast problems. Calling the police or any Asian population should get acquainted with government agency labels a person or family the people by attending some oftheir

Community Policing Conference• 109 ceremonies and eating some oftheir food. number ofcultures and languages, and not Officers should go out oftheir way to learn all Hispanics are Catholics. People coming some ofthe rudimentary common words and from countries in Central and South phrases ofthe language(s). It is extremely America do not understand our police and helpful ifthe chief ofpolice and the officer criminal justice system. In many ofthese attend a community meeting so the residents countries there are no police, only a military can see the connection. It shows the officer form ofnational guard. The concept ofdue has a direct link with the chief. process or guarantees ofone's civil rights are The use ofa translator is important. unknown. Community police officers One should not rely on a member ofthe should know the cultures ofpeople in their family since information may get screened. areas ofcontact. Knowing the culture will It is best to use an inside department help the officer identify clues and cues about translator or consultant services. Remember what is happening or may happen. It will that the sex and age ofthe translator may definitely help the officer to better handle adyersely affect the quality ofresponses. the situation and may well save the officer's The department should try to prepare a life. booklet that explains, in the appropriate Austin's Neighborhood Center. language, some ofthe police and criminal Officer Billy Sifuentes described how the justice procedures. Austin Police Department established St. Paul's ACOP Program. The St. neighborhood centers in several ofthe Paul Police Department's program is called minority communities. Here, the the Asian Community Outreach Program community police officers can provide (ACOP). The department established a services needed and requested by the mini-station in the Asian community (which residents. This also offers the officers a includes public housing) and staffed it wi~ neutral setting where officers can get to five Asian employees and five non-Asian know the residents better. Insensitivity that employees. These officers handle about 80 may occur on the street is thereby reduced. percent ofthe calls and conduct problem­ One would be surprised at the amount of solving efforts. Some ofthe techniques social services the community police officer associated with the program include the is asked to perform. Anything, from following: providing translation services to loaning a • Identify new immigrant arrivals and resident a decent set ofclothes for an orient them regarding the police and interview, might be requested. criminal justice system. Officer Sifuentes discussed • Conduct tours ofthe police head­ necessary elements for establishing similar quarters and offer ride-alongs. centers. Internally, the department should • Have regularly scheduled retraining make sure all forms, brochures, and other sessions (twice a month). documents are translated and readily • Make sure officers get to know the available in Spanish. The community police important foreign language words. officer should provide training and tutoring • Develop a mentor role. Help the to new officers so they better understand the immigrants adjust. various Hispanic cultures. This should • Work with the different groups provide an excellent opportunity to explain (elders and youth). to the new officer how to treat people with Hispanic American. Too often, all dignity and respect, not to become uncaring Spanish speaking persons are stereotyped or brutal. into one category. In truth, there are a

Community Pollclng Conference• 110 The department should conduct realize he or she is never offduty. The citizen police academies. It is advisable for officer must constantly look for ways to each neighborhood center to have an interact with the community, e.g., go to advisory council made up ofresidents, different churches, attend services and business people, other service providers, and functions, attend local business association even the assigned patrol officer. In Austin, meetings, track down persons who have the department has found that a mobile information or who are witnesses or victims, community center can help a neighborhood and work with other community workers in or strip shopping center create some stability the area. There is no reason that police and and regain pride. city employees cannot mentor some ofthe The community police officer must residents and youth while on duty.

Community Policing Conference • 111 Issues in Citizen-Police Partnerships

established only at the request ofexisting Moderator: John A. Calhoun, neighborhood organizations and serve to Executive Director, National Crime carry out the tasks set forth in the action Prevention Council, Washington, D. C. plan. Panelists: Robert D. Miller, Director, When the pilot program was NRPICARE Program, Minneapolis, initiated, the neighborhood selected as the Minnesota pilot site was at first not supportive. Mr. Miller acknowledged the community's Dennis P. Rosenbaum, Director, Center general mistrust, but "asked for a chance to for Research in Law and Justice, let it work." An initial team offour University of Illinois at Chicago representatives from the housing and health departments, a community crack prevention Felice Kirby, Director, Neighborhood program, and a pofice officer went to the Anti-Crime Center, Citizens Committee neighborhood and began surveying the for New York City residents, identifying community problems, Robert Miller directs the and mobilizing community action. The Minneapolis Neighborhood Revitalization team composition was reflective ofthe Program (NRP) and the Community and different government components whose Resource Exchange program (CARE), collaborative work was required to which endeavor to aid neighborhoods in effectively solve many ofthe long-range planning to address the most neighborhood's problems. The program pervasive community problems. He likens quickly managed to close several crack his program's approach to that ofa military houses without the use ofpolice, condemned operation which starts with a central point several buildings, and filed charges against and disperses from there. The most troubled the building owners. Eventually, a housing areas are typically located in the center ofa court was established to handle cases such as city and then spread to other parts. The these. Through the program, 225 homeless NRP/CARE program developed an opposing persons were placed in apartments where strategy that identified the area that had the property owners had agreed to reduce rents. strongest community features and began Among the factors that contributed strengthening it further to enable it to help to its success is the fact that NRP/CARE strengthen surrounding areas. only starts efforts in communities to which it To participate in the NRP, is invited. It is now in 11 neighborhoods in neighborhoods are selected for the planning the city and works with more than 20 process through a public lottery. Once different agencies and organizations selected, they receive start-up funds to cover throughout the country. Mr. Miller said the cost ofthe planning process. Residents that in order for programs like these to work, conduct organizing activities and work with they must start with crime and safety NRP staff and city agencies to develop a problems first. Without addressing these, multi-year action plan unique to their nothing else will attract the focus ofthe neighborhood. Like the NRP, the CARE community. Once these problems start to program brings together residents, stabilize, then residents can begin government agencies, and public interests. redirecting their energy to the next priority Neighborhood CARE committees are level.

Community Policing Conference• 113 Dr. Dennis Rosenbaum is presently is sought, community groups can also evaluating community policing initiatives in become too large to be effective. When they several cities. He found that one ofthe are dominated by professionals from problems in community problem-solving is agencies, community groups are sometimes that there are "no cookie cutter solutions." forced to adopt broader agendas and lose Each community and police-community sight ofthe local issues for which they were relationship requires specialized approaches formed. and solutions. Police often endeavor to Despite any problems encountered in solve community problems without the their development, Dr. Rosenbaum insisted involvement ofthe community, and in the advantages offorming community neighborhoods where conditions are worst, partnerships far outweigh the problems. the community often commands the police These partnerships provide an opportunity to to "oppress and crack down" to restore law have collaborative and less adversarial and order. On the other hand, noted Dr. relationships among community and Rosenbaum, the community may define government entities, and they allow for problems and play a role in solving them, diminishing feelings ofdistrust and but it does not always know what is good for suspicion. Access to government agencies it. Yet, it will still be resistant and resentful and resources is also made easier for the ofoutsiders who claim to know. Given that community through partnerships. The police have the legitimacy and resources to legitimacy of community organizations is initiate and organize community betterment enhanced when they affiliate with police and efforts, Dr. Rosenbaum asserted that it is other agencies. the police who have primary responsibility Felice Kirby is the founder and for educating and mobilizing the public. associate director ofthe Neighborhood Anti­ There is ahost ofresearch Crime Center, which achieved national documenting approaches to overcoming recognition for helping neighborhood community apathy and sustaining leaders build successful anti-drug campaigns community involvement and zeal. Efforts based on a three-fold strategy ofcommunity that survive the "honeymoon period" have mobilization, law enforcement, and multiple focuses and change according to substance abuse prevention and treatment. the needs ofthe community. Dr. She has experienced first-hand how effective Rosenbaum stated that focusing on three community groups can change the life of a main objectives for building strong community. She saw the demise ofa community groups-leadership development, community group with which she worked advocacy, and empowerment-will ensure for 18 years, and she experienced how life in effectiveness and longevity. the community changed in the absence of While partnerships between the group. Having effective community community groups and government entities groups, she attests, makes a major difference were acknowledged as important, Dr. and, as in her own home town, can become Rosenbaum noted several disadvantages the strength ofthe community and aid that challenge their development. There is survival through many trying times. often conflict among partners over goals and According to Ms. Kirby, a strategy how to achieve them. Prior adversarial for garnering community action should relationships can interfere with resolutions. consider two basic approaches. Addressing Partners also sometimes compete for limited a serious problem in the community usually resources and political recognition. And, serves as a great point ofentry for starting while wide representation and participation community cohesion and action upon which

Community Policing Conference• 114 to build. Sometimes, however, a community profiling," whereby officers have may have a great deal ofenthusiasm and questionnaires or forms and systematically energy focused on a certain objective that gather information about the area, residents, may not address a serious problem. In this and businesses. This must be bolstered by case, community organizers should get training that is not limited to internal involved in those efforts and then redirect resources, but uses external expertise as energy toward solving community problems. well. Also required is excellent supervision As a trainer, Ms. Kirby listed and support ofofficers, which Ms. Kirby several requirements for establishing noted cannot be overstated. The use of effective community partnerships. Training, unseasoned personnel with inadequate she said, is required for both sides-the supervision too often undermines community and the police or other involved community policing efforts. Lastly, agencies-and each side must have clear collaborative problem solving must involve roles. An interactive structure within which all agencies. Police cannot presume to solve people can work best must be identified for the problems ofothers without the the group, since some work better than involvement ofothers. Ifthe community others. Ms. Kirby recommended does not sanction the strategies ofthe establishing beat level councils whose department, the police will likely encounter composition and location rotate to resistance, or apathy at least. eventually reach and involve more people, Once an organized and effective especially those who do not always come to community partnership has been established, meetings. To assure accountability, Ms. Kirby suggested three key maintenance although this is very seldom done, Ms. tasks. The groups must recognize barriers­ Kirby urged developing a formal statement either people, agencies, or situations that are ofproblems and'then a documentation of obstacles to progress-and eliminate or responses and outcomes. diminish them. These must be identified by Community partnerships must also the community. Performance measures have implementation plans that should must also be in place to periodically assess include several elements. Police officers how the community partnership is working must be given the responsibility, perhaps as and to keep abreast ofcommunity a formal assignment, to engage in outreach perceptions. Ms. Kirby noted that among through regularly talking wi$ community the most important tasks is determining residents. To be most effective, assignments appropriate measures and criteria. She also should be geographically based so that highly recommended having structured officers can learn the issues, concerns, and communication and dissemination offormal characteristics ofa particular neighborhood. information that assesses progress and Ms. Kirby suggested that officers conduct priorities. what she called, "neighborhood or beat

Community Policing Conference • 115 Community Policing and Accreditation

training, internal affairs, court security, and Moderator: Robert K. Olson, communications. Regional crime labs, Commissioner of Police, City of academies, and communications centers can Yonkers, New York also be accredited through component Panelists: Gerald Williams, Director, certification. Law Enforcement, Education, and There was also confusion regarding Research Project, North Carolina State the eight categories for fee applicability and University, Raleigh, North Carolina costs; there are now four categories, resulting in a 25 to 35 percent savings in Thomas G. Koby, Chief of Police, four ofthe previous eight categories. Boulder, Colorado Another concern was that ~eaccreditation was more difficult than Wayne Huggins, Executive Director, gaining accreditation in the first place. To Commission on Accreditation for Law encourage agencies to focus on maintaining Enforcement Agencies (CALEA), the standards, the reaccreditation period was Fairfax, Virginia reduced from five years to three years (the Commissioner Robert Olson fee has been annualized). Many agencies opened the session by noting some also thought the on-site costs ofthe frequently heard comments about assessors was too high. CALEA now has a accreditation: that the national accreditation computer program to randomly select one­ standards are too rigid for community third ofthe standards for recertification. policing; that accreditation has increased Assessors will review only those standards agencies' credibility with city management; (although they can raise other issues). that, as a result ofaccreditation, managers Agencies will be informed ofthe standards now know what to do; that an agency has to-be reviewed when the assessors arrive on reached professional status once it is site. CALEA also has a program to train accredited; and that the state or some other and-certify assessors. There are 34 accreditation process is better than the assessments scheduled in September 1993, national accreditation process. involving 110 assessors. Wayne Huggins said that when he Most important, CALEA is was appointed CALEA director, he read sponsoring a thorough review ofall 920 many reports, letters, and other documents standards, and 32 people have volunteered to expressing concerns about accreditation and be reviewers. The process involves deleting questioning whether the costs were offset by irrelevant standards, combining standards the benefits. Meetings were held in that deal with the same issue, moving some Rochester, New York, and Edmonton to standards to more appropriate chapters, and addr~ss these concerns and to create a more making the entire volume more user responsive process. friendly. By January 1994, a new version One criticism was that accreditation will be circulated in the field, and at its seemed to favor cosmopolitan, suburban March 1994 meeting the commission hopes agencies. It was difficult for very large and to adopt a second edition ofstandards. very small agencies to complete the process. Other measures are being taken to reduce the In response to this concern, CALEA will amount ofpaperwork required ofagencies now have "component certification" for and to solicit and consider recommendations from users.

Community Policing Conference• 117 ChiefThomas Koby said that in his police chief in Aurora, Colorado, he view a police department's consideration of introduced community policing in an agency community policing is a signal that it is with 600 employees. His recommendation prepared to explore better ways ofserving is first to reorganize the department's the public. The department needs to look at infrastructure to support community everything it does in relation to its mission. policing, then implement the approach Accreditation is good because it causes throughout the organization. agencies to examine their operations Dr. Williams' current research is carefully. But the accreditation process exploring whether accredited departments needs to be reexamined, and CALEA needs can also implement community policing, or to ask: How can accreditation be ofmore whether the two processes are contradictory. help to agencies? Currently, the standards Most likely, it is a question ofsequence: the help agencies develop directives systems, department should articulate its philosophy but CALEA should also consider using and values first, then develop directives that te~hnical assistance providers and trainers to reflect those values. The research project assist with this. Another area ofconcern to involves two main activities. First, a many agencies is the need for training for detailed content analysis is being conducted first-line supervisors. CALEA should ofevery CALEA standard. A special consider ways to help agencies develop their computer program has been developed for personnel. Finally, the current format for this purpose. Each standard was coded with the standards gives the impression that there regard to whether it widens or narrows can be a "cookbook" approach to policing. police officer discretion, among other This is not compatible with a community's factors. Second, 12 accredited sites will be desire for creativity in policing. examined, and a special focus area will be Dr. Jerry Williams discussed an considered in each department. The NU-sponsored research project he is research includes telephone interviews with conducting with Dr. Gary Cordner on the chiefs ofpolice regarding the status of whether accreditation and community their community policing efforts. In policing are compatible. Dr. Williams addition, surveys will be conducted within explained that he has been involved with each department. accreditation since 1981, when he conducted In response to a question from the a pilot site assessment in Hayward, audience, Mr. Huggins noted that California, using 400 standards. The hope is accreditation can reduce civil litigation. In that accreditation will promote police Fairfax County, Virginia, with 120 deputies, professionalism. The accreditation process there were 20 lawsuits a year in the early is excellent for improving a department in 1980s. Ten years later, and after crisis, and a department's directives can accreditation, there were 560 deputies and increase professionalism ifthey are 0.9 lawsuits per year. Mr. Huggins said comprehensive. However, since policing CALEA can provide both assistance and has changed in the past decade, particularly assessment and is working toward becoming as a result ofcommunity policing, more service-oriented. CALEA is also accreditation also needs to change. trying to interest more large cities in Dr. Williams explained that as accreditation.

Community Policing Conference• 118 National Service: How It Can Help Community Policing

also pointed out that national service can Moderator: Rana Sampson, White help pay for police officer training. House Fellow, White House Domestic By 1996, Ms. Sampson estimated, Policy Council there will be 100,000 people in national Panelists: Dean Essennan, Assistant service, ofwhich approximately 25,000 will ChiefofPolice, New Haven, be involved in public safety activities, Connecticut, Police Department working with the criminal justice system. The funding for national service will be William J. Bratton, Police $300 million in 1994, $500 million in 1995, Commissioner, Boston, Massachusetts, and $700 million in 1996. Police Department In terms ofhow national service will help the criminal justice system, Ms. Clarence Hannon, Chief of Police, St. Sampson provided an example ofpolice Louis, Missouri, Police Department chiefs needing additional resources in sworn Rana Sampson opened the panel and non-sworn positions to free up officers session by providing background for community policing. National service information on the President's national workers can staff telephone reporting units, service initiative. She explained that the attend community meetings, analyze crime national service program combines data, investigate minor traffic accidents, educational opportunities with service, administer surveys, develop programs and teaching people responsibilities and initiatives, and more. accountability while fostering good Chief Clarence Harmon described citizenship. There are four areas in which his vision ofnational service in St. Louis. national service will be available: (1) The police department is currently education, (2) environment, (3) human needs implementing community-oriented policing (immunization, etc.), and (4) public safety. department-wide. There are three Ms. Sampson explained that national components to help the department move to service is about meeting needs and community policing: (1) neighborhood providing resources where they are lacking. service aids, (2) retired senior officers, and She also said that national service can help (3) the police corps. police departments focus on the problems of First, St. Louis is trying to crime and decay while national service coordinate city programs with the city's 75 providers handle administrative functions. neighborhoods through a Neighborhood According to Ms. Sampson, national Citizen Service Board, and the department service workers will receive a modest has neighborhood liaison officers (NLOs) stipend. Basically, it is an exchange of who serve on the board. The NLOs work in service for educational opportunity. The several neighborhoods that are receiving workers will receive approximately 85 intensive services. National service workers percent of minimum wage plus $5,000 per could assist this effort by helping to process year toward college tuition. In addition, the service requests, conducting surveys, federal government will pay 85 percent of mentoring, and channeling paperwork. health-care costs and 100 percent ofchild­ Second, the retired senior police care costs for national service workers. She officers' effort brings retired officers back to teach citizens at the police academy.

Community Policing Conference• 119 Citizens learn about mentoring youth? national service to support it, there is a risk making complaints to the police, and much in how officers will react. Bratton provided more. the following admonition: "Be sure [this Third, the police corps will benefit program] supports the basic tenets/control the most from the national service workers. mission and that it still has the ability to The goals ofthe corps will be to expose address crime and the causes ofcrime." people interested in police work to the Having said that, he described several ways reality ofthe work, to provide people with in which national service could contribute to experience in community service, and to community policing efforts. attract more college graduates. These First, there are outreach needs. He people will have an opportunity to develop indicated that there needs to be more some ofthe essential skills and experience outreach to pre-teens and teenagers ( age 10- necessary for a community policing officer. 17) to work as community organizers to As national service workers in the police administer surveys, assess needs, and work corps, they will be paid a modest stipend, with other agencies to provide services. receive educational assistance, and be given Second, there is the anti-gang unit. priority in the hiring process. Community youth might help officers steer Assistant Chief Dean Esserman youth away from gang membership and spoke about the New Haven Police violent street life. Department's model for community policing Third, with the diversity of and national service. The department's communities, police departments often need efforts would involve both youth and senior people with various ethnic and racial citizens in public safety activities. He backgrounds, particularly those who are explained that these people could come into multilingual. Such linguistics skills can help the police department to do work; they the police department communicate and would not be a threat to sworn officers and work with minority communities better. would help support the community policing Fourth, the domestic violence unit has a m1ss1on. heavy workload. National service could Assistant Chief Esserman train and prepare people to work in this field described how youth could serve as and support the unit. caseworkers for officers to provide a support Fifth, national service workers can network. The youth could work in the aid neighborhood watch efforts and other neighborhood substation in the community crime prevention activities. Sixth, national where they live. As caseworkers, they could service could provide technological and do research, attend community meetings, other kinds oftraining for police officers. etc. With the help ofnational service, officers Commissioner William Bratton could receive up to 24 days per year of explained how the Boston Police training. Further, national service workers Department would make use ofnational with technical skills such as computer service. First, he asked whether national programming could be brought into the service was a blessing or a curse. Although police department to work alongside officers many embrace community policing and and train them.

Community Policing Conference • 120 Partnership Panel: U.S. Department of Housing and Urban Development

Kinlaw described Greensboro, North Moderator: Elizabeth Cocke, Program Carolina, as having a total population of Analyst, Drug-Free Neighborhoods 225,000 with 15 public housing Division, Office ofPublic and Indian communities serving 15,000 residents. The Housing target site was Little Greensboro Village, Panelists: Alex Kinlaw, Sergeant, otherwise known as "the Hill." Initial police Police Neighborhood Resource Center efforts were directed at enforcement through Coordinator, Greensboro, North the use ofthe department's tactical squad. Carolina, Police Department Many arrests were made, in fact too many arrests since the jails were overcrowded. The police decided this effort was efficient Beverly Watts Davis, Executive Director, ' San Antonio Fighting Back of United but not effective. Residents ofthe public Way, San Antonio, Texas housing community were uneasy also. The police joined forces with the HUD Programs. Drug elimination public housing authority, residents, and grants have been one ofthe principal other service providers to implement funding sources for implementing community policing in four ofthe largest community policing in public housing. public housing communities. The initial Over $148 million has been earmarked for effort placed police officers exclusively in this program. Another program establishes these chosen communities. youth programs in public housing The PNRC has three major communities to combat youth involvement functions: with drugs. As part ofthe drug elimination (1) Deliver police services. grant program, public housing authorities The assigned officers are first can request technical assistance for on-site responders to calls in their area. They have planning oftheir community policing communications equipment (radio) and programs. Consultant services may be given police cars so they can drive directly to the for a maximum of$10,000 and 30 days. location. Their primary emphasis is on the Interested jurisdictions can call (800) 955- quantity and quality oftheir foot patrol. 2232 to receive a technical assistance grant They stress non-adversarial contacts with the kit. Elizabeth Cocke can be reached at (202) public. They found that the vast majority of 708-1197. problems in the selected communities were In the future, HUD will expand its caused by outsiders. efforts against drug problems. Additional (2) Serve as a liaison with referral focuses will be on family disputes, alcohol­ capacity. related problems, and organizing community Since the beginning, the police have partnerships against crime. There is included all human services providers in legislation before Congress to expand the their program planning and implementation. drug elimination grants to crime elimination They have written memoranda of grant programs, with an appropriation of understanding (MOUs) so there is support $150 million. for requests for service. The MOUs allow Greensboro Police Neighborhood for a quid-pro-quo with the police, giving Resource Center (PNRC). Sergeant Alex

Community Policing Conference• 121 service providers the support they need and • Put your own money where your early referrals. This requires the police to be mouth is. on the lookout for other quality of life In order to implement such a issues. They may, for example, ask program, Ms. Beverly Watts Davis pregnant women ifthey are in prenatal care. suggested several ground rules. It is Ifnot, they can make the proper referral. necessary to recognize what brings people The police have found that assigned officers together. Include all groups in the initial must be totally committed to working with discussions, steps, and planning. Begin to the residents and must not be disheartened if build a coalition that will make your they perceive apathy in the resid~nts. The program happen. Commit to assessing the officers must concentrate on having key problems in the community (needs and residents help themselves. One way to build resources). Be aware ofchanges in the the necessary trust is for officers never to community. Continue to plan, implement, promise more than they can deliver. and document what is happening with the (3) Solve problems. program. The officers assigned to the PNRC The community has leaders who can are expected to solve problems by getting to facilitate. Both formal and informal leaders the root causes ofthe problems. This effort are valuable. People will support what they has been most frustrating but most help to create. Leaders focus on the "bigger rewarding for the officers. Usually, police picture" and do not let groups become side­ cannot make an independent decision and tracked by apathy and negativism. True must run the solution up the chain of leaders share their roles and nurture others to command. The program encourages the become leaders. Remember, as leaders, to officers to follow through with their "keep your eyes on the prize." Any innovative solutions, such as basketball deviation will be detrimental to achieving leagues and having children's pictures taken the mission. Resources will have to be used with Santa Claus. Many oftheir programs where they are most needed, but any issue tap into the youth ofthe target area. On the can help to keep the team focused. downside, many police commanders are Ms. Davis gave several other concerned about the potential for civil instructions for a successful program. Have liability in innovative solutions. regular meetings and provide training to San Antonio Fighting Back. The key community leaders to generate community elements of the "Fighting Back" program support. Hold retreats to lay out the mission include the following: and goals. Conduct ongoing recruitment • Develop community-wide efforts to bring new members into the group. prevention efforts. Persons recently recruited should be • Recognize, develop, and provide immediately put into the work groups. Mix leadership. assignments so people don't grow stale. • Maintain momentum. Establish operating norms by defining roles • Implement activities. and responsiblities. Recognize, reward, and • Build resources. celebrate successes. Immediately address • Assess the impact ofthe prevention and resolve conflicts. efforts. Design activities to address the • Develop partnerships that involve identified needs. Keep people busy. cooperation, coordination, and Involve as many people as possible in collaboration. planning and implementing activities. Establish an evaluating process for activities

Community Policing Conference• 122 to determine their impact and success. Use (simulated police academy). the results to improve or correct failure. Funding, in-kind contributions, Make sure that activities are culturally human capital, community capital, and sensitive, relevant, and appropriate. Have partnership collaboration through co­ officers work with citizens, and have location ofresources can all help the citizens go through a citizens' academy program succeed.

Community Pollclng Conference • 123 Partnership Panel: U.S. Department of Labor, Youth Fair ChanceNouth Opportunities Unlimited (YOU) Program

delinquency, crime, and drug trafficking in Moderator: Terry Orr, Director, Youth the selected neighborhoods. Fair Chance Demonstration Evaluation, Ed Turley's organization works with Academy for Educational Development, a private industry council to provide work New York, New York experience for youthful offenders. The Panelists: Ed Turley, Deputy organization provides graffiti abatement as Director, Community Youth Gang part ofits strategy against violent gang Services, Los Angeles, California activity. The organization is modeled after the Philadelphia plan that uses former gang Jeff Seifert, Executive Director, members to mediate in gang disputes. Mr. organization has addressed gang Ecumenical Social Action Committee J Turley's Youth Fair Chance in Boston (Egleston problems across the city ofLos Angeles and Square), Boston, Massachusetts has dealt with gangs ofall types, including Crips, Bloods, and others. · Ana Palmer, Executive Assistant, Office In 1987, it began a six-component ofEmployment Development, Baltimore, strategy for the East Lps Angeles Maryland jurisdictions. This included crisis The Youth Fair Chance initiative intervention, in which individuals go to was intended to target high poverty "hang out" where the gang members communities with approximately 25,000 themselves go, in order to encourage and residents. Because youth and family assist those who want out. Mr. Turley said problems are very interrelated, multiple there was a large "cry for jobs" among this service agency partnerships were needed to population. The second component ofthe achieve the goal ofdeveloping productive, strategy is job development. The program self-sufficient young adults. This could helps the youth get ready for employment, typically involve city-wide agencies that providing them with interview skills, could deliver youth and adult education, pre­ resumes, etc. The third component is known employment, recreation, social service, as community beautification. This is the neighborhood safety, and health care program's graffiti removal initiative. eleme11:ts. Private industry councils were Graffiti is used as a means of encouraged. communication between gangs and often Models addressed poor school marks turf boundaries. The youth in the performance, unemployment, welfare program serve under journeyman painters to dependency, and juvenile delinquency. Part remove graffiti and beautify the community. ofthe outcome ofthe grants was the The training gives them practice in basic job development ofa process or approach to skills such as being on time and getting address those problems. Resource advisory along with other employees. The fourth boards were formed, and community centers component ofthe strategy is known as and core programs were formed that were "Career Paths, Alternatives to Gang intended to be free-standing enterprises Membership." This instruction has several within a three-year period. Results ofthese levels and aims at helping youths avoid peer grants have had an impact on juvenile pressure that pushes them to be in gangs. It also fosters self-respect and tries to help them stay in school.

Community Policing Conference • 125 The fifth component involves the 8:00 p.m. until 3:00 a.m. These individuals parents and teachers ofthe youth in the may be between the ages of 17 and 35, can program. Participants in this component be from rival gangs or rival housing areas, visit block clubs, PTOs, and churches in and are often sponsored by law enforcement affected areas to sensitize them to gang groups. Positive, organized, supervised activities in order to help them see signs of recreation helps as a diversion method. this subculture. Developing a sense of In the Egleston Square Project of community is an important link for the Boston, Mr. Jeff Seifert reported the success ofthis effort. The final component partnership ofcity-wide agencies included ofthe strategy is known as "100 Men Plus." Community Development (housing This element emphasizes the need for men authorities), the YMCA, the Boston Urban to hold visible activities, such as basketball Gardeners, many church groups, and tenant games or other sports, in these organizations in the affected housing areas. neighborhoods. Masculine role models are There was a competition among often missing in affected communities, a neighborhoods in greater Boston for the situation that strengthens the gangs' position model community in this program. Egleston with the young men. The community has to Square won the competition. That area "buy in" to the change, or the effort as a includes two ethnic groups: African whole cannot succeed. American and Latin American. There is The Youth Opportunities Unlimited also a small, older, Anglo American (YOU) program uses a restitution model population. through which youth who have community The core project is an alternative service as part oftheir probation or parole high school that opened in January 1992. It clean alleys, clear trash, and remove graffiti. is competency based and currently has 60 When this service is completed on time and students enrolled. The Boston School without signs ofgang affiliation, these Department provides services and teachers, youths are offered employment for up to 20 who must apply to teach in the special hours per week at a wage of$4.50 to $6.50. school. The students run the policies in the The program also works with the city school on subjects such as attendance, and council and various church groups. Tutoring they try to put programs into the school that and other services are available to help engage and interest the students. youths in the program and young adults This community ofabout 25,000 affected by the Los Angeles riots. These residents is isolated. It had, prior to the participants may be up to the age of29. Mr. Department ofLabor (DOL) grant, no bank, Turley has seen the need to be creative with no pharmacy, no movie theater, and no the problems ofyouth and to get away from public transportation. There has been a bureaucratic procedures. Otherwise, the history ofhigh crime as well. One mark of criteria for getting into the program may end program success, according to Mr. Seifert, up excluding those most in need ofhelp. is that it was able to avoid having a youth One Old Gangsta (OG) "veteran" ofover 19, characterized as a martyr when he recently who has returned to law-abiding behavior, initiated violence against the police and was may be able to affect many younger killed in the process. Through the individuals. There is much better success intervention ofthe YOU program, a bank with suggesting what to do rather than what was brought into the area (Fleet Bank), and not to do. The late-night and daytime it has substantially invested in the physical basketball leagues have recruited 350 environment surrounding its offices. players. They have 16 teams that play from

Community Policing Conference• 126 All the participating young people public transportation and little industry: are Boston residents; most ofthem are Latin only a barber shop, a beauty shop, a funeral American, but a significant proportion are home, and a "ma & pa" grocery. The African American. For one reason or dropout rate for high school students is the another these students were unable to highest in the entire city (about 50 percent). succeed in the regular school system. The During the planning phase ofthe local police have been supportive; they proposal for the DOL, Mayor Kurt L. donated a truck, for example, to deliver Schmoke convened a subcommittee ofhis desks to the school. Community policing in cabinet in the subject area ofhuman this neighborhood is primarily beat-walking, services. The necessary partnerships for the which has provided large amounts of project were thus readily available. Banks, information on the community. the private sector, Urban League, police, and Ms. Ana Palmer reported on the the communities were involved. Sandtown neighborhood project. The The planners determined that they proposal for this program involved a needed a family orientation for this project, matching grant, meaning that the applying as the problems ofthe youth required that neighborhood had to find $2. 7 million in family difficulties be addressed. The project funding to add to the same amount from took the form ofa one-stop community DOL. In the planning phase ofthe proposal, center, with teen activities, literacy training, the representatives ofthe DOL visited to day care, and Ventures in Community meet with all the partners who would work Improvement. This is a training project in on the project. Two out offive possible which 18- to 24-year-old dropouts are projects and complementary activities had to taught construction industry skills by be chosen for development through the grant journeymen and community college funding. personnel. There is also a dropout The Baltimore area selected the prevention program. Buy-in from the neighborhood ofSandtown for their project. community is definitely necessary for This community is 72 square blocks, with a positive results. One ofthe youths involved population ofapproximately 12,000. in the project was able to completely build Seventy percent ofthe households are two houses, one to be sold and the other for headed by single women; 53 percent rely on his own family's residence. The program welfare income; and 70 percent receive has also developed a family case some kind ofpublic assistance. The management information system with a unemployment rate in the neighborhood is central database. This allows easy reporting 23 percent, approximately double the rate of to the 20 different funding partners. the city overall. According to the 1990 Recreational and cultural activities census, however, as many as 41 percent of are the big key to involving the young the male community members and 53 people. The program has developed a percent ofthe female community members "Midnight Basketball" league, and the were not active in the labor force. Seventy community center holds dances, teaches percent ofthe housing has been rated as reading and gives GED preparation, and has substandard, and there are about 600 vacant a teen parents' program. Local law houses. One 531-unit apartment complex is enforcement has gotten involved and helps nearly empty. Only 20 percent ofthe sponsor activities such as the basketball. housing is owner-occupied. The police have also developed an effective The ethnic make-up ofSandtown is gun buy-back program. 98 percent African American. It has no

Community Policing Conference• 127 Training Workshop: Layv Enforcement Response to Child Abuse

needed steps to prevent and detect the Instructor: Bill Walsh, Lieutenant, problem. Dallas, Texas, Police Department Despite the difficulties, police are in Crimes against children are among many ways ideal agents for combating child the most difficult crimes investigated by law abuse. Collecting evidence and conducting enforcement officers. Lieutenant Bill investigations are police specialties. Police Walsh reported that the crime usually has can arrest offenders and get them into the no witnesses, as the offense is committed criminal justice system. They can one-on-one. Children are perfect victims, interrogate offenders, obtain and execute for they cannot fight back or run away and search warrants, respond immediately, and they are trusting. Moreover, children are use the "long arm ofthe law'' ( calling police viewed as being inherently less credible and in other jurisdictions to learn what a suspect · competent than the offender. Also, the may have done there, etc.). Also, police are defendants in child abuse cases usually do armed, and the presence ofan officer's not brag about their crimes, making weapon can prevent violence. · detection that much more difficult. Usually Houses in which molesters operate there is no physical evidence ofthe crime, may contain many clues to the offenders' and when there is, it does not prove who activities. Police should look for video committed the crime. games that are used to lure children into the Child abuse cases often involve house, then for X-rated videotapes that the concurrent civil, criminal, and molester shows to children to lower their administrative investigations, and the cases inhibitions about sex. Computers, disks, and often cross jurisdictional lines. Child abuse bulletin board servers may contain clues usually does not consist ofa single, isolated about sex rings or may hold digitized child incident; instead, it takes place over time, so pornography. that the victims often cannot even say how Offenders usually pick on children many times the abuse occurred (although whose parents are not heavily involved in techniques such as tying the abuse to dates a their lives. As for other physical but child might remember, such as Christmas, nonsexual abuse, the speaker said he expects Easter, or the child's birthday, sometimes to see more physical abuse and deaths from helps a child pin down a date). Victims child care providers in the future. often do not want offenders punished or Interrogation ofsuspects has two imprisoned; they just want the abuse to stop. goals: manipulating the suspect to tell the Also, victims may not disclose the abuse, or truth, and doing so in a way that meets legal the disclosure may be delayed or scrutiny. Several techniques are useful in progressive. conducting interrogations ofsuspected child Child abuse is often investigated by abusers. It is vital to know the case well, inexperienced or poorly trained personnel that is, to know what is alleged to have because ofturnover in the field. Also, child happened. It is also important to know as abuse investigation is not usually the upward much as possible about the suspect, route for ambitious investigators. The including such facts as whether he has been whole criminal justice system is designed arrested before for the same crime. more for the needs ofadults than children. The timing ofthe arrest is important, In addition, communities' denial ofchild as the suspect is more vulnerable when abuse often prevents them from taking isolated from his support systems. During

Community Policing Conference• 129 an interrogation, the police should display no badge, gun, beeper, or other reminder of the consequences ofa confession. Police should take care to use a private place for the interrogation; the offender, ifhe does confess, does not want to tell everyone in the station what he has done. Police should also wait to give the Miranda warning until reaching the police station.

Community Policing Conference• 130 Triad Program: Community Connections with the Elderly

law enforcement open and facilitate Moderator: Betsy Cantrell, Director, communication with the senior citizen Crime Prevention-Triad, National community because it is the fastest-growing Sheriffs' Association, Alexandria, segment ofour population. Virginia _ He pointed out that success depends Panelists: Robert J. Prins/ow, Sheriff, on the way in which services are delivered Marion County, Oregon, Sheriffs Office to the seniors in the community. He also said that a primary concern for the Marion Steven D. Weaver, Chief ofPolice, County Triad is meeting the needs ofsenior Newport, Rhode Island, Police citizens. A SALT council was established in Department nine communities throughout Marion County, and four other communities are Clara K. Brown, Chairperson, working to set up a SALT council. Columbus, Georgia, SALT Council Among the concerns raised at the Betsy Cantrell opened the session SALT council meetings are safety issues by describing the Triad program. The related to shut-ins, establishing national Triad effort is coordinated through neighborhood watch, and setting up a senior the American Association ofRetired citizen patrol to curb thefts and vandalism. Persons, National Sheriffs' Association, and Sheriff Prinslow talked about one area in the International Association ofChiefs of Marion County that established such a Police. The purpose ofTriad is to work patrol. Prior to the establishment ofthe together at the national and local level to patrol, there were approximately 350 thefts reduce victimization ofthe elderly and to and 40 to 7 5 burglaries per month. After the reduce fear ofcrime. patrol was started, there were none. To help At the local level, police, sheriffs, support the patrols, the sheriffs department and senior citizens work together to prevent provided the seniors with training and crime and address the issues surrounding cellular phones to call the police department victimization ofthe senior community. patrol cars directly ifthey spotted something Many ofthe jurisdictions participating in suspicious. Senior citizens also raised Triad agreements also have SALT councils concerns about scam artists who target the (Seniors And Lawmen Together). The elderly; they wanted information on how to SALT council brings together leaders among protect themselves. The sheriffs department the senior citizen community, police, and provided them with training and information sheriffs to talk, listen, plan, and strategize in on scams that were being operated in the a collaborative manner. area, and the seniors set up a monthly Sheriff Robert Prinslow explained newsletter about what to look for and what that many people in public safety turn to was going on. A final concern that Sheriff community policing concepts-getting the Prinslow discussed was that senior citizens community members involved in day-to-day felt intimidated by the youth who hang activities and decisionmaking. Marion around stores. The sheriffs department County, Oregon, began adopting a provided the seniors with information on community policing philosophy in 1990. what to look for to avoid victimizations. It Sheriff Prinslow said that it is essential that also made arrangements with the police department to do foot patrols.

Community Policing Conference• 131 Sheriff Prinslow noted that focusing saying, "Barriers can be broken down and efforts on the concerns ofthe elderly· connections can be made between people." improves the quality oflife for everyone. Clara Brown, a representative ofthe The SALT council gives senior citizens an Columbus, Georgia, SALT council, opportunity to decide wh~t law enforcement remarked that Triad is a gjant step toward services are provided and how they are crime prevention for the elderly. She delivered. The senior citizens conduct the explained that the Columbus SALT council SALT meetings and law enforcement is a working organization dedicated to the personnel act as resources for information protection and well-being ofseniors in the and education. Sheriff Prinslow told community. attendees to remember that senior citizens In 1991, the sheriff, police, and are one ofthe best support groups for law seniors signed a Triad agreement to work enforcement, both as a strong political base together on program development and and as a volunteer resource. The SALT enhancement oflaw enforcement service council and volunteer efforts have enabled delivery to the senior citizen community. Marion County to enhance and expand its Fifteen senior citizens were asked to serve community policing efforts. on the SALT council, whose function is to Chief Steven Weaver described serve as a law enforcement advisory board how the Newport, Rhode Island, Police to inventory programs, monitor and assess Department works with the elderly as part of the impact ofprograms, tailor programs to its overall community policing efforts. For the needs ofthe elderly, and inform the example, the police department and the elderly that they have a voice. senior citizen community are involved in Ms. Brown described the initial programs for youth, in order to foster a tasks and development ofthe council. Its better understanding between the first task was to survey the senior citizen generations and to help eliminate fear and community to identify its issues and uneasiness ofthe eldedy around youth. concerns. Based on this information, the Some ofthe senior citizens work on council established committees to work on cosmetology, arts, and crafts programs for specific issues. Some ofthe committees, young girls and women. results, and products ofthe survey are Another program is the Adopt-a­ described below: Grandparent program. Special education • Public relations committee to students are paired up with patients in inform the public ofthe SALT nursing homes. The effect on both the kids Council and crimes against the and the seniors is very good. It helps the elderly elderly understand the youth and provides an • Education committee to develop opportunity for them to see mild-mannered programs to teach police officers to and less aggressive youth. The Newport recognize the signs ofAlzheimer's Police Department also has a citizen police disease academy that travels to senior citizens to • Policy committee to sponsor a help educate them on crime prevention, seminar on missing items and theft police activities, crimes, etc. There is also in nursing homes-how patients can an awareness effort that notifies senior protect themselves, how to locate citizens about crime, how to identify the missing items, and what policies problems, and how to get results in solving and procedures should be in place the problems. Chief Weaver concluded by • Seminar on "Aging in the '90s," which brought together

Community Policing Conference• 132 professionals and senior citizens to inspect the home for safety and talk about care and finances for the cleanliness, etc. elderly • Recognition program for people • Adopt-a-Senior program, in which who do special things in and for the police and sheriffs deputies adopted senior citizen community a senior in their beat to visit on a • Planning committee on seniors weekly basis to alleviate loneliness, helping seniors

Community Policing Conference• 133 Varieties of Community Policing Around the Country

expanded. The public voted Moderator: Frank Hartmann, overwhelmingly in favor ofallocating Executive Director, Program in Criminal money to do this. Within one month, four Justice Policy and Management, teams, one per precinct, were established. Harvard University, Cambridge, Each team geared its strategies and activities Massachusetts to the needs ofits community. The team in Panelists: Dan W Fleissner, the downtown area, for instance, focused on Planning Manager, Seattle, Washington, concerns regarding the homeless and Police Department panhandlers, while another team focused on school-related issues. The major benefit of Craig B. Fraser, Director of Training, the community policing teams, said Mr. Richmond, Virginia, Police Department Fleissner, is that they handle problems other than just 911 calls for service. They do Dave Williams, Assistant Chief, make arrests, but they also work as needed Portland, Oregon, Police Department with schools and other agencies to help residents. The teams are now well Dianne Salen, Corporal, Community established and popular. Crime has leveled Oriented Police Enforcement, Prince offin the areas with teams, while continuing George's County, Maryland, Police to increase in other areas. Department Community policing in Seattle is Dan Fleissner has more than 18 known as a team operation department-wide. years' experience in public safety planning A key factor in its success is involvement of and is currently 1nvolved in the Seattle the entire department. All officers receive Police Department's transition to community one week ofintensive training. Another policing. Community policing in Seattle important factor is that the promotion of started in 1988 when community groups community policing is specifically tailored approached police at various precincts and for different audiences. Mr. Fleissner requested help. The department's initial emphasized that efforts to get funding response was to avoid the community support may have to vary. groups and discourage any changes in Mr. Fleissner noted that education policing. Many meetings were held at and orientation are important components of which the department presented every a community policing model. The public, possible obstacle to community policing: he said, must first be educated about what there was no provision for it in the budget, it police really do because they do not really was not in the department's policies and know. The public must also be educated procedures, it had not been done before, etc. about what community policing is and The community and those favoring become familiar with the concept ofjoint community policing persisted, and the problem solving. The police department department finally conceded to try it. must also become better educated about who The initial step toward community and what comprises the communities it policing involved the creation ofa pilot patrols. Each community might have team ofcommunity policing officers. At the hundreds ofcommunity groups and time, a management study ofSeattle was organizations that reflect its interests. Mr. completed, and it determined that Fleissner encouraged the use ofresident community policing teams should be

Community Policing Conference• 135 surveys to get the best insight into a assessment that determines if community. resources are used to capacity Mr. Fleissner recognized cost issues 3. Redesigning patrol beats to and organizational change as among the few reflect natural community problematic areas in community policing boundaries that still need to be addressed. Community 4. Training and education ofpolice policing can be labor intensive, and it costs and community more than traditional policing, at least in the 5. Designing short-term, high­ short term. He also noted that the police impact crime control strategies to department's organizational structure needs show immediate results rather to be moderated so that more decision than waiting for long-term making can take place at lower ranks, as accomplishments described in the community policing model. While community policing officers Despite any shortcomings, however, are engaged in nontraditional policing and community policing in Seattle is considered are more involved in issues that are not a model for the nation. NU recently directly crime-related, the primary mission awarded a grant to the city to document how ofcommunity policing is crime control. community policing was developed and Community policing allows officers to implemented. recognize disorders and prevent criminal Dr. Craig Fraser is responsible for situations. Through the officers' knowledge community policing training for the ofresidents and their activities and homes, Richmond, Virginia, Police Department, and through the community's heightened which has been involved in community awareness ofcommunity life, criminals are policing for five years. Richmond's strategy, deprived oftheir anonymity, making them he said, is a planned approach that has a less inclined to commit crimes and less philosophical foundation, and it is designed likely to escape arrest ifthey do. to permeate all divisions ofthe qepartment. Dr. Fraser said he has learned that He lists five guiding principles: community policing can only succeed in the 1. It is based on a set ofvalues. presence offundamental changes in the 2. It makes a commitment to police department. Changes in the problem solving. department require consciously adjusting the 3. It moves away from dependence organizational structure and translating this on 911 calls to gauge problems. into behavioral changes. These changes 4. It focuses on service delivery to must transform the department from one that the neighborhood. is autocratic and authoritative to one that is 5. Officers at the line level are decentralized and open and that works with considered experts for their areas. and respects the community. This is no Richmond's community policing minor task. The department has operated program was phased in over four to five under traditional rules and regulations for a years and involved five key tasks: long time, and there are many that will be 1. Developing a set ofvalues, based resistant to change. Dr. Fraser offered two on discussions with the approaches to address this: Mid-level community and government managers must be taught how to convert 2. Developing a plan for use and their old skills to work in the new control of911 work demands, environment, and they should be given the based on a resource allocation first opportunity to be trained in the new skills. Community policing must be focused

Community Policing Conference• 136 on small geographic areas so that assigned offering assistance to the community officers can better identify what problems policing effort. The department is now exist and apply appropriate resources. developing enhanced training for all Officers must also engage the community at branches. This will be offered first to the various levels: daily contact, community highest ranks and eventually will be given to education, ad hoc efforts focused on specific patrol officers. problems, community consulting, and Corporal Salen is presently the only partnerships. community policing officer in her beat of The police department ofPrince 13,808 residents. Each community policing George's County, Maryland, has always had officer was assigned to a specific beat and a commitment to the community policing began implementation ofa set oftasks. philosophy, as reflected in the first sentence Corporal Salen first established a satellite ofits mission statement, which reads: "To office, the space for which was donated by work in partnership with the citizens of the community. She prepared a beat Prince George's County toward providing a condition report and then developed a beat safe environment and enhancing the quality management strategy. She began by oflife consistent with the values of our ' · developing personal relationships.with the community." In 1990, the police department people and businesses in her beat, using received a grant from the Bureau ofJustice scooter and car patrols. She handled select Assistance to develop and implement a calls for service in her beat, attended civic community policing plan. Corporal meetings, and made home visitations. Dianne Salen, who was among the first Corporal Salen noted several officers to volunteer for community policing problems that can arise with community patrol, described the planning and policing, and she suggested solutions. She implementation process. said burnout among community policing Developing community policing for officers is common but can be addressed by the county was done in three phases: having a more stringent selection process for planning, training, and implementation. The officers. Those who want to be community planning phase involved establishing a policing officers for the good ofthe committee ofrepresentatives from the program, as opposed to those having selfish Citizen Advisory Council, Health reasons like interest in accruing overtime, Department, Department ofEnvironmental are less inclined to become over-stressed. Resources, Apartment and Office Building Bureaucratic procedures can also be Association, Child Protective Services, and overwhelming, but this problem was Department ofPublic Works. This alleviated in Prince George's County by committee outlined community needs and getting full and official support from the described how respective agencies could county executive. The common problem of help meet them. In the training phase, the community apathy was addressed by entire department received training, which showing that the police department wanted included required reading and discussion of the community to be involved. Officers met Problem Oriented Policing by Herman with mini-planning committees composed of Goldstein; training in computer crime citizens, held a citizens' police academy, analysis retrieval and programmatic and beat and involved the community in all efforts. condition reporting; and special training by Corporal Salen emphasized that the Police Executive Research Forum. community buy-in can only be won by Officers also met on a weekly basis for in­ persistent communication. depth training from specific agencies

Community Policing Conference• 137 Dave Williams, who has worked committees, and from it, a five-year with the Portland, Oregon, Police Bureau for transition plan was adopted. more than 20 years, was responsible for the According to Assistant Chief development ofthe city's communit)' Williams, a plan for community policing policing transition plan. He assisted in the must consider several factors. It is difficult formation ofthe department's Community to change the culture within an organi:zation. Policing Division. Planning for community People resistant to change must come to see policing began in 1989 and implementation what community policing would mean to began in 1990. The directive to implement them and what their new roles would be. community policing came jointly from the The mission and goal statements ofa plan mayor, the city council, and the chief of must be articulated in terms ofvalues, and police. The city's strategic planning model officers must be exposed to actions that help was developed with reference to other align the practice ofcommunity policing community policing models but was with these values. The plan must be designed specifically for the needs of outcome-specific and output-focused, rather Portland. The first step in the process was to than process-focused. This serves as the identify key stakeholders and conduct an foundation for training and service organi:zational assessment to determine what development. Lastly, Assistant Chief they wanted from the police department. Williams emphasized the need to include a They compared services already provided performance evaluation component that with what was needed. A five-year draft considers attitudes ofthe community as well plan was produced from reports ofvarious as outcomes ofactions.

Community Policing Conference• 138 Mobilizing Municipal Services for Community Policing

Broadway-Simpson is a Moderator: Gerard J. Hoetmer, neighborhood in Sergeant Balles' district. Assistant Executive Director, It is a six-block area with about 3,000 International City/County Management residents, over 800 apartment rental units, Association, Washington, D. C. and 30 different managers or owners. In the Panelists: Joe Balles, Sergeant, years 1989-1991, there was a heavy Madison, Wisconsin, Police Department migration offamilies from Chicago to Madison. In those three years, there was a Andrew J. George, Sergeant, Lansing, 100 percent increase in calls for service to Michigan, Police Department the Madison Police Department. By the standards ofMadison, formerly a relatively George C. Crawley, Assistant City quiet city, this neighborhood was out of Manager for Public Safety, Norfolk, control. The fall of 1990 saw the arrival of Virginia many hard-core "gangbangers" from This panel examined and discussed Chicago, and in the spring of 1991 the first how to organize government services at the crack arrests were made. It was the neighborhood level. The panel consisted of beginning ofthe open-air drug markets. In two community police officers, who 1991, the city began problem-solving efforts discussed their successes and failures in to combat the changes in this neighborhood. their implementation ofcommunity A documentary entitled "Changing Face of policing; and a member ofcity government, Madison," on a local CBS affiliate, who spoke about difficulty in establishing highlighted these problems to the general community policing and about the public. Numerous articles were written cooperative projects that can be organized concerning major crimes, gangs, and when the city and the police department "troubled neighborhoods." The community work together. responded by forming a rental property Sergeant Joe Balles presented an managers/owners association, and the overview on being the initial community Rainbow Coalition formed a resident police officer in a neighborhood. One association. Government responded by difficulty is the many roles a neighborhood assigning a full-time building inspector and officer undertakes. These include the providing funding for neighborhood center traditional officer, whose primary expansion. responsibility is law enforcement; the The most positive outcomes realized detective, who investigates crimes and from neighborhood policing were the community disputes; the social worker, personal relationships that developed whose main function is short-term problem between residents, property owners, and solving; and the community organizer, who managers; collaborative relationships focuses on long-term problem solving. developed with other government agencies; Another difficulty with community empowerment ofneighborhood residents; organization is that different properties have and seeds that were planted for future different owners. Each owner has his or her community development. own idea ofwhat the police officer's Sergeant Andrew George discussed involvement should include. Lansing's Neighborhood Network Center. The community policing program began in

Community Policing Conference • 139 Lansing four years ago with one community York City. When the police department policing officer, and there are now fifteen. began community policing, it developed a Two years ago, the department decided to philosophy but needed a framework-so it adopt a community policing philosophy, formed PACE. The intent ofthe which is not yet ingrained throughout the organization was to conv~y that problems department. and solutions involve all citizens as well as The department decided to interact social services and the police. The city with Social Services workers, who would go council used revenue from a three-cent real into the schools, while the community police estate tax increase to rent additional offices officers would start in the same and to promote related activities. neighborhood and attend the interagency One ofthe main objectives ofPACE group meetings. In February of 1991, the was to create a presence in public housing Lansing Police Department formed a group areas to reduce the fear ofcrime so social oforganizations with a private donation of services workers would feel safer working in $1,000 to pay the utilities. However, the crime-affected neighborhoods. Since PACE police department got stuck with most ofthe was funded by taxes, it had to maintain high other responsibilities. It was forced to deal visibility and activity. The Norfolk Housing with problems while other groups were Authority realized it needed to be a major pulling out ofthe organization. player in the partnership so it got $800,000 Then the chiefofpolice left, and the ofdrug elimination grant monies from the department had no chief or other agency Department ofHousing and Urban assistance. The community police officers Development. This money currently helps looked at three allematives during the to support PACE. The Norfolk Police transition: (1) "drop-in" method, where Department also formed a partnership with people could just come in for what they the public school system. needed (but where transients would probably PACE members realized they should come in and just hang out); (2) programs have a goal ofproviding support and that could be sponsored by private grants; or inspiration for the community. They began (3) a problem-solving team that would meet other pre-service training programs for once a week. Using the third alternative, unwed mothers and children. Some ofthese they formed a partnership with the school programs include job training, night district. As the problem-solving team began basketball, an athletic league, and a support to take shape, other agencies got involved services committee. They formed a Family again, and more money began to flow. This Assessments Services Team (FAST), which led to the network ofmunicipal services that attempts to tum words into actions. PACE is up and running in Lansing today. also formed a Neighborhood Environmental George Crawley spoke about the Assessment Team (NEAT), which keeps Police Assisted Community Enforcement neighborhoods clean. The strongest (PACE) program. Four years ago, commitment in Norfolk, with this joining of community policing was implemented in agencies, is to cut out the red tape in order Norfolk, Virginia, to combat crime and for community-oriented government to violence as the city became a fertile drug work. area for people co~ing south from New

Community Policing Conference • 140 Police/Public Health Partnerships

its start after the New Haven chief ofpolice Moderator: Kenneth E. Powell, was called to a homicide scene and saw, Medical Epidemiologist, National Center around the corner from the kitchen where for Injury Prevention and Control, the murder victim lay, five small children Centers for Disease Control and sitting neglected on a couch. The police Prevention, Atlanta, Georgia were busy gathering evidence. The Panelists: Dean M. Esserman, children's parent was the murder victim. Assistant Chief, New Haven, To address the problem ofthe effects Connecticut, Police Department ofviolence on children, the New Haven Police Department developed a course on Steven Marans, Assistant Professor of the subject for its officers. Instructors were Child Psychoanalysis, Yale School of drawn from the pool ofdoctors at the Yale Medicine, New Haven, Connecticut Child Study Center. The police now make sure the Center Emily C. Martin, Director, Training and is notified whenever there is a serious crime Technical Assistance Division, Office of involving a child ( even as a witness). A Juvenile Justice and Delinquency representative from the Center then comes Prevention, U.S.DepartmentofJusvce out to help the child. As part ofthe program, the police Carole Miller, Assistant Director, department also leases 500 pagers for its Neighborhood-Based Alliance Program, officers. The officers are encouraged to give New York State Department of Social their pager numbers to store owners or any Services, Albany, New York other citizens who might need to contact What is public health? Public health them. Likewise, ifan officer sees a child in as a field has a community perspective, need, he or she can call the information in to noted Dr. Kenneth Powell, encompasses a doctor and a higher-level officer 24 hours a many disciplines, and is geared to day. Officers have reported feeling more prevention. Public health workers are helpful when they can help victims in this concerned about common and potentially way. common health problems. Dr. Steven Marans reported that on Homicide is now the 10th most the Yale Child Study Center side, doctors common cause ofdeath in the United States, note that children chronically exposed to and among persons age 15 to 34, it is the violence may develop nightmares, trouble in second most common cause ofdeath. school, and difficulty with sleeping and Therefore, public health agencies have eating. Exposure to violence is not rare: one become concerned about violence as a out of 10 children seen in the primary care danger to public health. The connection unit at a Boston hospital were found to have between public health and community witnessed a shooting or stabbing. policing is their focus on prevention. When doctors from the Yale Child Dean Esserman reported on the Study Center arrive at the scene of serious Yale Child Study Center/New Haven Police crimes that children have witnessed, Department program on child development Dr. Marans said that the children typically and community policing. This program got express disbelief that the event has occurred. The two groups ofchildren that are most

Community Policing Conference• 141 vulnerable to later problems after witnessing pregnancy reduction efforts are to succeed, violence are those who have experienced community members must take prior difficulties (with sleeping or eating, for responsibility for themselves and their example, or in school) and those who show community. However, they need help doing no symptoms at all, not even talking about so. Ifthey were capable ofadopting and the incident. satisfying those responsibilities on their own Emily Martin stated that the Office initiative, serious neighborhood problems ofJuvenile Justice and Delinquency would not exist in the first place. Prevention (OJJDP) feels community New York State's adolescent policing could help prevent delinquency by pregnancy program has had different focuses providing a mitigating, softening, and over time. Sometimes the program focuses protective effect for children who witness on prevention; at other times, the emphasis violence. The frequency with which some is on help during pregnancy or assistance to children witness violence is astonishing. At parents who are trying to become self­ a recent Washington conference on violence, sufficient. The geographical areas the one youth said 40 ofhis friends had been program chose to serve were those that killed. ranked statistically high in low birth OJJDP urges police departments to weights, infant mortality rate, single-parent include a child-oriented focus in their households, and high-school dropout rate. community policing efforts. The state's Neighborhood-Based Carole Miller explained that Alliance Program attempts to assist teamwork among social service agencies and everyone who lives in a selected community. a community sense ofownership ofthe Members ofselected neighborhoods draft program are vital to success in community­ five-year action plans. Safety has been high based efforts. Ifcrime reduction and teen on every group's list.

Community Policing Conference • 142 Partnership Panel: Bureau of Justice Assistance

information and resources, and (2) to create Moderator: Donna Schultz, Crime change. Prevention Branch, Bureau ofJustice To promote community policing Assistance, U.S. Department ofJustice partnerships, agencies can begin with police Panelists: Robert Coates, Senior officers who are already open-minded, Manager, Neighborhood Policing provide orientation and training in a Services, National Crime Prevention comfortable environment, and encourage Council, Washington, D. C. everyone to share ideas. Effective peer trainers should be used. Officers should be Steve Morreale, Special Agent, Drug encouraged to get out into the community. Demand Reduction Coordinator, U.S. As simple an activity as lunch at the schools Drug Enforcement Administration can help both students and faculty start seeing officers as human beings. Randall Phillips, Community Leader, Departments should also emphasize how Muskegon Heights, Michigan community policing can improve the quality Donna Schultz noted that on a oflife for officers as well as residents. recent Meet the Press television program, Dr. Robert Coates emphasized that two police chiefs were asked whether they "partnerships don't just happen"; people could stop crime ifthe number ofpolice must be educated about the need to work officers, prosecutors, and judges were together before they can be motivated, doubled. They i:eplied that they could not, organized, and mobilized. Most people but that they could make some significant want to know, "What's in it for me?" changes in neighborhoods. The purpose of Organizers must acknowledge the mutual this panel, she said, is to talk about different benefits to be gained, work toward building ways police-community partnerships can be trust, and foster a feeling oftogetherness. A approached. , number ofdifficulties can be anticipated: Steve Morreale noted that the Drug turf battles, ego battles, and difficulties in Enforcement Administration (DEA) has 19 making a paradigm shift from traditional drug demand reduction coordinators (DRCs) roles toward community policing. Dr. in the country, and that he is the DRC for Coates described the main steps in the six New England states. The process of developing interagency collaborative "selling" demand reduction within DEA is partnerships as follows: similar to selling community policing within • Define the vision and the purpose. a local police department. The New • Identify the agencies, community England demand reduction effort is a organizations, residents, and others partnership that includes DEA and other who should participate. federal agencies, local police chiefs, sheriffs, Participation ofjuveniles is colleges, criminal justice planners, state important. police, crime prevention associations, • Recruit people who have a stake in training councils, municipal associations, the problem. These are not citizens, and others. The main purposes are necessarily the agency directors. (1) to create a network for sharing • Select other agencies and residents to get involved. • Provide orientation and training. Community Policing Conference • 143 • Share data, especially data that can Copies ofthe letters are sent to the police contribute to a needs assessment. and prosecutor. "Our only weapons," said • Develop a work plan that states Mr. Phillips, "are a number two pencil and goals, objectives, and activities. a stamp." The association then checks with • Implement the plan. police to see how they have followed up. • Assess effectiveness. Association members also meet with • Keep the group motivated. landlords and help them screen prospective • Celebrate victories. tenants. Members also go door to door to Randall Phillips explained the encourage residents to use cards on which history and work ofthe Muskegon Heights they can anonymously report drug activity Neighborhood Association, which began as and other crimes. Cards are also distributed a block club and evolved into a partnership to businesses, individual churches, and a that succeeded in closing 53 drug houses. coalition of 13 churches. The association now comprises 13 block There are few positive activities for clubs in an area with 20,000 residents. teenagers in the community, and many have Mr. Phillips said his street became been seen congregating on various street known as "the strip," with prostitutes, crack corners. The association recently ·organized dealers from Detroit, and gun sales a task force to develop activities for teens. destroying the neighborhood. His own son In response to a question about how to could not walk home from school safely. He sustain residents' involvement over time, and other residents called on the police and Mr. Phillips recommended making personal other agencies to assist in effecting change. contacts and going door to door, getting One ofthe first steps was to talk to churches involved, working toward a shift in city officials, who erected "No Parking" and attitude among residents, and staying in stop signs. A "hot spots campaign" was touch with residents' needs and concerns. then launched in cooperation with the police He also said community organizers must and the city housing department. The develop strategies based on the knowledge association sends letters to landlords of that some landlords and residents benefit buildings where drug activity is conducted. financially from the drug trade.

Community Policing Conference • 144 Training Workshop: Performance Measurement and Appraisal of Community Policing

deterrence to crime (visibility) and citizen Instructor: Timothy N. Oettmeier, satisfaction (receipt ofadequate police Lieutenant, Houston, Texas, Police assistance). Department Criteria for the evaluation ofthe Lieutenant Timothy Oettmeier police officer's performance need to be described his discussion as an effort to be altered to correspond with his or her tenure useful to police departments that were and experience, since the individual perfects interested in learning to convert to different kinds ofcompetency at different community policing organizations. He phases ofthe career. In the first phase, basic commented that the entire concept of policing skills are explained and performance evaluation needed to be demonstrated, and the individual achieves overhauled in light ofthat perspective. He success by performing those basic skills. challenged the structure and usefulness of This phase involves primarily reactive present-day performance evaluation methods knowledge, skills, and abilities (KSAs). In and noted that there could be no "quick fix" the intermediate and senior levels ( sergeant, to the changes involved. lieutenant, etc.), the necessary KSAs change Lieutenant Oettmeier to include more coactive and proactive recommended looking at community skills, such as self-management, teamwork, policing as a management philosophy that negotiation skills, organizational savvy, affects the results expected from the officers. innovation and creativity, and tactical It governs how citizen expectations and planning. Lieutenant Oettmeier defined demands for police service are integrated coactivity as an active outreach and with actions taken by a department to systematic engagement between the police identify and address conditions that and the public to identify and address · adversely affect the safety and welfare of problems ofcrime and disorder. community life. Formation ofan interactive For the department to conduct partnership with the community requires effective performance evaluations in this organizational changes that support the context, the supervisor and subordinate need officer's ability to deliver neighborhood to jointly target the employee's contributions services. toward ongoing organizational goals and Performance evaluation looks at form a partnership to continue to search for knowledge, skills, and abilities exhibited in new work to be done towards those aims. the individual's activities. Lieutenant Examples ofself-directed activities were Oettmeier pointed out the need to factor in given, such as planning ways to address the results achieved by those activities in problems, informing citizens and teaching order to make a more meaningful evaluation. them problem-solving approaches, He said the performance should be looked at cultivating community resources for as a means to an end rather than an end in response to problems, and assessing itself. He tabulated various examples of effectiveness ofdifferent solutions. police activities together with the desired Lieutenant Oettmeier listed the following result that they were intended to achieve: implications ofthis change in perspective for example, the activity ofpreventive patrol for performance evaluation: would be intended to achieve a result of

Community Policing Conference • 145 1. The performance assessment individual's professional system should be constructed as development. a dynamic, progressive process. 3. The outcomes associated with the 2. The performance expectations performance assessment system should be aligned with an should ultimately be anchored within the community.

Community Policing Conference • 146 Plenary Panel: Community Government

with crime. Riordan, a successful Moderator: Rose Ochi, Director, businessman, knows that improving the Criminal Justice Planning Office, Los economy and improving public safety must Angeles, California go hand in hand. He pledged to focus on Panelists: Stephen Goldsmith, crime prevention, gang reduction, and Mayor, Indianapolis, Indiana community participation in creating solutions to crime. Dave Mora, City Manager, Salinas, For the first time, even the criminal California justice budget received scrutiny. Police officers have not received pay raises, and Matt L. Rodriguez, Superintendent of their morale has plummeted. As a result, the Police, Chicago, Illinois, Police city is trying to find new sources ofrevenue. Department The goal is to free up more sworn officers The arson and violence that tore a for patrol duties in a community policing path ofdestruction through Los Angeles mode. after the Rodney King verdict shattered the The situation in Los Angeles is public's confidence in the ability of similar to what other cities face. Similar government to protect lives, homes, and riots were repeated elsewhere. But civil businesses. Rose Ochi said the King disorders are not inevitable like earthquakes. incident was a defining moment for Los Prevention is the best step towards Angeles, this country, and especially persons preparedness, and the best form ofpolicing involved in the administration ofjustice. is community policing. It is necessary to The King incident thrust the issues of rebuild neighborhood infrastructures. This police use ofexcessive force and civil is a community empowerment era. disorder onto the front burner ofgovernment A strong network ofresidents and and particularly law enforcement. Then­ community institutions contributes to a mayor Tom Bradley established the system ofshared values that does not Christopher Commission to look at the tolerate criminal behavior. This situation and make recommendations. One cohesiveness encourages concern for fellow of its paramount recommendations was to citizens and increases the likelihood that the establish community policing. commission ofillegal acts will result in The city's new police chief, Willie swift detection and apprehension. The ideas Williams, was selected because ofhis of inner city residents have not been experience in instituting community policing adequately tapped. Cohesive communities in Philadelphia. He has been given a do not exist in most minority mandate to convert Los Angeles's traditional neighborhoods. Community empowerment policing approach to a community strategy. seeks to rehabilitate not only individuals but The new mayor, Richard Riordan, also communities. was swept into office on a public safety Mayor Stephen Goldsmith platform calling for the hiring of3,000 more discussed community government in police. This is premised on the Indianapolis. For 18 months, Indianapolis understanding that to rebuild its economic has been rushing to implement community and social vitality, the city must first deal policing. The 12th largest city in the

Community Policing Conference • 147 country, Indianapolis has the same problems crime itself. Fear ofcrime erodes as other cities. neighborhoods even more than crime itself, When looking at the most difficult because it affects the patterns oflife and neighborhoods, one sees a sanctioning investments in those communities. system that does not work, that no longer To expand on those points, with significantly changes conduct. Moreover, as respect to custom design, police training wealth moves out and government moves in, must be addressed so that departments can there has been an erosion ofmiddle-class decentralize geographically. Then, inside images, ofmentoring, and ofpeer examples. those decentralized geographical units, There is no conceivable way this departments can devolve authority to the country or any city can afford enough police street officer to come up with locally officers to impose safety and security in managed solutions with community groups. such neighborhoods without participation Regarding community power, in an from the leadership in the neighborhood. underclass, crime-ridden neighborhood, it is Even with an officer on each comer walking easier to go in and make an arrest than to the beat, it could not be done. work through the steps that involve the How can police resomces be used in community in the solution to that crime. a way that encomages and develops, or Working with the community is not a reignites, the indigenous capacity in each skill that many officers have. In neighborhood? For the past 20 years, departments that have not had community conservatives have called for more law policing, a street officer who drives a patrol enforcement and more prisons, while people car into one ofthose communities views on the other side have called for more most ofthe people there as the problem, not economic opportunity, more racial equality, the solution. Why? Because the only and more investment ofpublic dollars in interaction that officer has with that those neighborhoods. Now, it is recognized community is at the moment ofarrest. that neither approach is going to work It is important for police to enhance without the other. the credibility ofpersons who are willing to The question is how to combine cooperate with them. When a few scared social cmes and consequences for crime. people in a public housing community Governments can work to create safe receive enough cooperation from the police, environments and then, afterwards, put they tum into a majority, come out oftheir public money into a community to restore apartments, and are willing to participate the houses. Alternatively, governments can openly with the police department. restore the houses, give people hope, and Such bridges can be built in many then look for community safety to evolve. It ways. How many police departments have is difficult to figme out which is the better officers trained to participate as partners route, so the answer must be to do both in a with community development corporations, comprehensive and concurrent fashion. helping them evaluate safety in an area: Fom simple principles ofpartnership what streets to close, what areas to light, and are worth bearing in mind. First, no matter where officers should be redeployed? Those whether a city is large or medium-sized, its who are active in setting policy should look plan must be custom-designed. Second, for ways that the police, city hall, and communities need to be given authority to neighborhood groups can come together. solve crime problems. Third, the police The police departments ofthis must be partners with other city and state country are much farther along in the agencies. Fomth, fear is as important as process ofcommunity government than the

Community Policing Conference• 148 rest ofcity hall is. Ifa really committed beat The United States is in transition, officer receives training in community noted Dave Mora, facing unemployment, policing and is put out on the street, it is homelessness, lack ofhousing, and lack of only a matter ofdays before he or she confidence in government at all levels. complains that the rest ofthe bureaucracy is Local governments have fewer not being responsive to his or her phone resources but greater demands for service. calls. Ifofficers are expected to be the Residents are demanding to be a part of outposts ofgovernment, they must have solutions to community problems. Although some authority to deliver the product. community-oriented policing is the topic of In some cases, police departments this conference, it is not the total answer. It and government are simply not set up right, is one part ofa total solution that must in the sense that they are not geographically involve all levels and branches of oriented. Most other departments of government. It must also involve public­ government are not. There is a street private partnerships and residents in local department, sewer department, etc. communities, cities, counties1 and states. However, there is no department ofthe "near Crucial to the total solution is the north side" oflndianapolis. Next year, concept ofcommunity government or Indianapolis may take all the service community governance. Governance is the agencies ofgovernment and recreate them as act ofgoverning, while government is the generalists, giving them geographic organization and structure involved. responsibility that at least meets police Community governance and community precinct boundaries, ifnot the actual district government must express a strategy that is boundaries as well. capable ofanswering a few key questions: Cities must do whatever they can to Who is really in charge? The residents of reclaim spaces so people have an cities and counties. Who pays the bill? opportunity to lead decent lives. Those same residents. Who knows the Community policing provides many problem and the solution best? Again, the weapons citizens can use. Indianapolis residents. And who can help and be part of furnishes a full-time lawyer to community the solution? Police and government. organizations to sue local nuisances, Local government can be an whether they might be massage parlors, effective part ofproblem-solving. An liquor stores, or crack houses. important part oflocal government is Regarding fear, community-based assuring public safety and protecting life and surveys have found that particular fears vary property. So community-oriented policing from one neighborhood to another. In one, can be an integral part what can be called the main concern may be garage burglaries; community-oriented public services. in another, it may be molestation; and in What constitutes community­ another, it may be public drunkenness at a oriented public services? In Salinas particularly important intersection where (population 115,000), it is the attempt to people have to walk by. recognize who is in charge, who pays the Community government is difficult bill, and who really knows what the because the political process does not give problems and solutions are. A key element neighborhood groups much authority. But if in the Salinas strategy was to involve the those groups do not have enough authority, whole government organization, including they cannot be effective partners to the elected officials, line employees, union police. presidents, department directors, and supervisory and management personnel.

Community Pollclng Conference • 149 Beyond the police, the city's library, Community-oriented public services, recreation, and neighborhood cleanup inclusive ofcommunity-oriented policing, programs must be part ofthe total strategy to can result in responsive community deal with the needs ofresidents. The effort government that can deal with aggressively might be coordinated through police involved neighborhoods and local residents. agencies, but the overall challenge is to A responsive government can ensure the make sure all city resources are responsive survival oflocal communities. The to local community needs. · challenges are ~ignificant but must be Commitment by locally elected accepted. officials is a fundamental requirement. Few Superintendent Matt Rodriguez city managers, chiefs ofpolice, or individual noted that for police executives managing officers have final authority. However, the transition from traditional to community­ those appointed officials must make sure oriented policing, few issues are more they listen to the elected officials. important than the relationships between Community-oriented public services police departments, other agencies ofcity can work. In May of 1991, some Salinas government, and the community. Chicago's council members and local neighborhood community policing program is called residents took city staffon a tour ofan CAPS (Chicago Alternative Policing abandoned bakery warehouse, an 8,000 Strategy). This is Chicago's unique version square foot building that had been vacant for ofcommunity policing, not a strategy a couple ofyears. Those giving the tour told defined by any other city; it is a new way of the city staffthat there were no recreation policing. facilities in the area and something needed CAPS is still new, having been to be done. introduced on April 29, 1993, as a prototype The staff~ ofcourse, gave the usual in five ofChicago's 25 police districts. The response: "Yes, we don't have any recreation five CAPS districts are spread throughout facilities in the area, and we don't have any the city and are diverse in their racial, plans, and we don't have any money. ethnic, and socioeconomic compositions as However, ifyou really want a program, it well as their crime problems. will probably take 18 to 24 months and $2 Under CAPS, police officers are million." In this case, however, the bakery working with the community to identify and warehouse was acquired, rehabilitated, and solve problems, not simply treat their furnished as a recreational facility just four symptoms. At the police officer level, the months after it was identified as a potential program has beat teams and rapid response site and three months after the city council teams. The rapid response teams handle 911 decided to do it. calls, freeing up time for the beat teams to It was successful because people address long-range problems. However, came in and said they wanted it. They built both groups ofofficers are expected to it. The total cash investment by the city was engage in proactive, problem-solving less than $500,000. It was built with the activities. free labor ofneighborhood residents; union , The community is involved at all contractors gave oftheir time; materials levels ofthe organi7.ation. At the district were donated; city employees volunteered. level, a formal community advisory It is a gem, and its continued success is an committee has been established in each indication that ifgovernments listen, not just prototype district. At the officer and hear, they will be able to meet people's supervisor levels, the community is engaged needs. through neighborhood meetings, foot

Community Policing Conference• 150 patrols, and other face-to-face contact with city agencies, exposing them to the concepts beat officers. and structure ofCAPS. City employees are Identifying, prioritizing, and solving going on rides with police officers and problems at the beat level is supported by a observing other operational units, and police process called beat profiling and action officers are being exposed to the duties and planning. Beat officers record chronic procedures ofthe other agencies they need problems on their beats and identify to work with. resources to address them. Police officers, This is important because the other city employees, and members ofthe efficient processing ofrequests for city community then use the beat profile to services is a key to success. The process of develop a plan ofaction for each beat. identifying and solving problems that Another key element ofCAPS is involve multiple agencies is streamlined by training. Earlier this year, 1,750 police the mayor's Office ofInquiry and officers from the prototype districts were Information. It serves as a single point of trained over a three-month period. They contact for service requests from the police, studied interpersonal communication, city agencies, and the public. problem-solving, and alliance-building. The When an officer on the beat observes training took place in a community center on a problem, or when citizens bring a problem the city's south side, where civilian experts to the officer's attention, the officer taught many ofthe classes .tlongside sworn immediately completes a special CAPS personnel from the police training division. service request form. The form is sent to the Community leaders sat in on some sessions. Office ofInquiry and Information, where it In each prototype district, computers is logged into a computer and directed to the are being installed to improve data appropriate agency. Emergency requests collection and crime analysis at the can be called into a 24-hour hot line neighborhood level. The computers will established for the CAPS prototype districts. also allow districts to electronically map This approach saves officers from having to crime hot spots and to track neighborhood learn the inner workings ofeach agency in problems such as graffiti, abandoned city government. vehicles, and problem liquor establishments. Another key element is follow­ The critical elements in CAPS-beat through. Not only must potholes be filled profiling, training, computeri7.ation, and abandoned cars towed promptly, but communication, and evaluation-involve beat officers and the community must be not just the police department but also city provided with information on the status of government as a whole. From the problems they have identified. When beginning, Chicago Mayor Daley made it citizens bring a problem to the attention of clear that community policing was to be a the police, they want action. Most citizens priority for the whole city government. He understand that not every problem can be has begun to articulate a single strategic fixed right away, but they want honest vision ofstronger neighborhoods and a answers to such questions as: Who's better quality oflife for ~itizens. All working on the problem? What will it take department heads are beginning to work to get it fixed? When might that happen? from the same playbook, and they are being The Office ofInquiry and held accountable for achieving results. Information provides each CAPS district Cross-training helps. The police with a weekly computer printout on the department recently conducted a two-day status ofall service requests. That training class for representatives ofother information helps officers identify chronic

Community Policing Conference• 151 neighborhood problems and improves their problems and develop plans for the future. credibility with the community. · City government can work in a A final element is the issue of seamless fashion to solve problems, but collective responsibility. It is devastating to should police departments always take the the credibility ofpolice officers and lead role? Can cities rely .on a policing potentially disastrous to policing efforts if strategy as a primary vehicle for achieving the police-and not city government as a their broader strategic goals? Can cities whole as well as the community-are the achieve community government strictly only ones who accept ownership of through community policing? The answer neighborhood problems. One ofthe most to these questions is obviously "no." promising outcomes ofthe CAPS program For now, the leadership role assumed in Chicago has been the significant increase by police in Chicago and other cities is in communication and networking among appropriate, as public safety is the anchor city employees at all levels. Every month, for strong neighborhoods. But in the future, CAPS project managers meet with top all city agencies must become involved as managers ofother agencies to go over recent active partners in community government.

Community Policing Conference• 152 Community Policing in Public Housing

informed and knowledgeable about the Moderator: Sylvester Daughtry, Chief public housing culture. The department of Police, Greensboro, North Carolina, should review existing policies and Police Department procedures (for example, on use offorce, Panelists: Deborah Lamm Weisel, racial sensitivity, and language) to Senior Research Associate, Police strengthen those policies that support public Executive Research Forum, Raleigh, housing residents. North Carolina Trust-Building. Trust-building, particularly engagement ofthe community, William M. Rohe, Professor of City and is one ofthe cornerstones ofcommunity Regional Planning, University of North policing. Unfortunately, lots of Carolina at Chapel Hill organizational baggage (failed programs, broken promises, poor management and William H. Matthews, Director of adminis~tion, fiduciary improprieties, etc.) Community Police and Criminal Justice comes with_public housing (both on the Programs, International City/County national and local levels). Many local police Management Association, Washington, do not understand the public housing D.C. bureaucracy. Most residents and housing Deborah Lamm Weisel discussed staff do not understand criminal justice approaches that have been found effective in procedures. To develop mutual trust, the public housing environment. No single several police programs have been initiated approach has an advantage over others. in public housing developments, including Many successful public housing citizen ride alongs and citizen police communities have used more than one of academies. Police problem solving is these approaches. particularly effective ifthe police address Cultural Awareness. The public the residents' problems. housing culture must be understood before The police must remember that effective community policing programs can residents view problems in the public be introduced. Police must know the housing communities differently than the demographics ofthe development, the police ( e.g., noisy neighbors, graffiti, gangs, language, the variety ofbehaviors, and the and poor maintenance). Police usually public housing authority bureaucracy and define problems as drugs, robberies, policies. Unfortunately, there exists too assaults, shootings, etc. The police can much stereotyping ofpublic housing translate some ofthe residents' perceived residents, which inhibits understanding. To problems into crime-causing issues. In aid understanding ofthe culture, police Newport News, Virginia, the police were departments need innovative approaches. A able to interpret residents' complaints about department could have recruits live in public inadequate, broken, or nonfunctioning housing for short periods oftime. Resident apartment doors, windows, walls, etc., as the pol~ce officer programs have the assigned cause ofburglaries and larcenies. The police officer live in the public housing community must market their program. An effective where he or she works. Field training technique is involving public housing officers {FTOs) also should be well development children to reach the adult residents.

Community Policing Conference• 153 Improve Police/Community Building Effective Partnerships. Communications. Often police and public Police, residents, and public housing housing staff believe public housing personnel must work together to build residents are apathetic and just do not care. partnerships. One way ofbuilding One reason for this perception is the lack of partnerships is for each stakeholder to play effective communication. Public housing an active role in solving specific problems. environments have different customer bases The property manager can use lease and need different approaches. In some enforcement ( expanding upon the failure to housing developments, 40 percent to 50 pay rent) to bring about stability in a percent ofthe units do not have telephones. housing development. At the same time, the More effective communication in public police can support the manager by screening housing starts with looking for other ways to tenants. Residents can report improper reach out to the community. Posting and tenant behavior, and the police can drop off delivering newsletters door to door, reports involving tenants. Residents and conducting door-to-door surveys, and police can work together with property resident meetings are ways of maintenance personnel to reduce trash, communicating between police and graffiti, and vandalism. Police can look for residents. Some police have conducted other ways to assist public housing focus group sessions with residents to help communities through public housing identify actual and perceived problems. authority (PHA) boards and members; Police have responded in some jurisdictions facilitating service to the residents by by providing beepers, radios, or telephones explaining regulations and how the system to selected residents so they can works; helping residents get the appropriate conveniently and rapidly communicate with service; and providing transportation, etc. officers. Dr. William Rohe explained that Crime Prevention Activities. Some public housing has been influenced by social ofthe more effective community policing disorganization. Public housing contains activities carried out in public housing most ofthe problems associated with drugs developments are directed at preventing and violence and receives most ofthe crime. Unfortunately, some public housing publicity that perpetuates only the communities were poorly designed; their stereotyping ofits residents. Some public physical structures, poor maintenance, and housing developments have high crime lack ofaesthetic qualities are an invitation to rates, with up to 70 percent ofthe families crime. Police departments can work with having some involvement in drugs. These public housing authorities to plan and facts erode support for all public housing implement crime prevention through and tend to make other communities lump environmental design techniques. all public housing together. Unfortunately, Traditional target hardening tactics such as many public housing authorities and police lighting, improved locks, secure doors and departments do not have adequate databases windows, controlled access, and permit to identify the types and magnitude of parking are all techniques used by a number incidents occurring in and around public ofthe authorities. Improving the physical housing developments. The federal conditions, such as trash pickup, graffiti government expends large amounts of removal, and landscaping can help the money on the Department of Housing and perception that people care and that crime Urban Development (HUD), yet most public and destruction of property will not be housing comes under local public housing condoned.

Community Policing Conference• 154 authorities. Public housing developments skills and poor prior public housing are part ofthe greater community. management have created a culture whose Too often in public housing there is a collective behavior and action revolve diffusion ofresponsibilities and "buck around suspicion ofgovernment, suspicion passing." This diffusion does not allow for ofauthority (particularly police), and even the development ofpartnerships and trust. suspicion ofneighbors. There is a history ofineffective Sufficient resources have not been communication between police, residents, directed at public safety and support and public housing officials. Parties do not services. In the broader context, local come together in a timely manner, nor is government has downplayed its sufficient information shared. responsibility to provide adequate resources The Safe Neighborhood Awareness to public housing deyelopments. The Program (SNAP) in Charlotte, North federal monies have not necessarily been Carolina, has effectively closed the spent wisely or directed to public safety or communication gap by involving residents, improving the residents' quality oflife. police, and public housing officials. Five Dr. Rohe pointed out the special residents have been hired to provide victim opportunities for community policing in assistance services to the tenants. Three public housing. Some public housing retired police officers have been hired to developments have established strong and conduct investigations within the various effective resident associations. In other housing developments. The police developments, the public housing authority department has assigned a liaison police has made a concerted effort to screen out officer, who conducts weekly meetings and evict problem tenants (such as Chicago's between police, residents, and public "Clean Sweeps"). Residents are willing to housing management. The result has been participate when they see serious that, in the SNAP target area, there has been commitments from the police and PHAs to only a I percent increase in reported crime, introduce and follow up on the sanctions. while other public housing areas have had a At the federal level, more monies 22 percent increase in crime. need to be provided to local jurisdictions. The current location, design, and HUD needs to streamline policies and occupancy ofpublic housing is not procedures. Eligibility criteria, conducive to crime prevention or crime rent/employment ratios, etc., must be control strategies. Most inner city public changed so residents have hope to get out of housing developments are too large and too the dependency cycle. BJA and the isolated. Often public housing authorities Department ofJustice must continue to lower eligibility requirements to keep support innovative programs at the local vacancy rates low. While some public level. Public housing authorities must housing developments have evolved improve their management skills, and they effective governance among residents, must be consistent and fair in enforcement public housing management, service ofthe lease provisions. There must be providers, and police, the majority ofpublic substantial coordination and collaboration housing communities have stakeholders who between police and the PHAs. Special lack the skills associated with being an efforts must be directed at getting residents active partner in community policing. They involved. have no training in activities such as William Matthews reported that collaboration, consensus decision making, recent HUD programs have sparked renewed and problem solving. The lack ofthese interest in increasing the safety ofpublic

Community Policing Conference• 155 quality oflife. Such programs as HUD's be a victim ofhomicide, and twice as likely Public Housing Drug Elimination Grant, to be burglarized or raped. The residents Operation Clean Sweep, Law Enforcement who live in distressed public housing Analysis, and Technical Assistance in Public developments (inner city high-rises) are Housing are requiring PHAs, residents, and confronted with living conditions hard for local law enforcement agencies to work anyone even to visualize. together. Recently, the Bureau ofJustice Public housing residents often hear Assistance and HUD joined together to that the reason they receive slow or provide training and technical assistance to inadequate police response is that there is a jurisdictions planning and implementing lack ofpolice resources. When the political community policing in public housing. Six pressure gets "hot," the police increase their regional workshops are planned for the community relations activities and remainder ofthis year and early next year. containment programs; when all else fails, Community policing is not well they conduct a sweep. These eventually understood in the general population, and it have an adverse effect. is even less so within public housing. From There is no commitment by the side oflocal law enforcement agencies, government to involve the residents in public housing communities are often revitalizing their neighborhood. Community stereotyped as not wanting to become policing, honestly and aggressively led, can involved. The truth is that public housing make a difference. Community policing residents are substantially more victimized stresses helping the most vulnerable in a than other community citizens. Public community. Those who live in distressed housing residents are four times as likely to public housing may be considered among be a victim ofrobbery, 11 times as likely to the most vulnerable.

Community Policing Conference• 156 School Violence: Partnerships for Community Policing

other year on levels ofsafety, fear, and other Moderator: Clarence Edwards, Chief violence-related issues. One ofthe primary of Police, Montgomery County, findings was that teachers did not feel safe Maryland, Department of Police or capable ofhandling problems. Therefore Panelists: Zachary Tumin, Executive intensified training was developed to Director, Division of School Safety, New provide them with more skills and self­ York City Public Schools confidence in dealing with youth problems. The SMART program distinguishes Ann B. Madison, Director, Human between criminal and delinquent behavior. Relations and StaffDevelopment, Ifa student commits a criminal act, then he Norfolk, Virginia, School District or she is punished as a criminal. Ifthe problem is discipline, then other actions are Ellen Brickman, Director of Research, taken. She explained that the school Victim Services Agency, New York, New reclassified actions as disciplinary, illegal, or York attendance related. The district then Chief Clarence Edwards set the developed disposition codes for parents and tone for the panel discussion by pointing out students so that they know in advance what several factors that contribute to violence the consequences ofcertain actions will be. among youth and in the general population, Ifa student acts inappropriately, the such as dysfunctional families, poverty, teacher will first intervene to solve the racism, gang activity, weapons, community problem. Ifthe problem is not solved, he or apathy, and lack ofcommunity services. she fills out a disciplinary form that is With these factors in mind, Ann Madison entered into the SMART database and stored described the Norfolk School District's with the student's record. A team that efforts to curb violence in the school system, includes teachers and youth meets to called SMART or School Management And develop a plan for the student, based on Resource Teams. other information included in the SMART Ms. Madison explained that the database. Using this model helps teachers SMART program is a model for problem­ and administrators identify chronic solving and management, first pinpointing behavioral problems. problems and then working together with the Ms. Madison reported the following youth to find solutions. Some ofthe preliminary results ofthe SMART effort: program elements are safety or security • In 1992, there were 25 gun assaults audits, incident profiling, district and in Norfolk's schools. In 1993, there school-wide efforts, and interagency were 6 gun assaults. coordination. Ms. Madison said the • In 1992, there were 108 suspensions program grew out ofthe belief that for gang-related incidents. In 1993, discipline is everyone's responsibility. there were none. Working with this belief, the school district • In 1992, there were 29 suspensions intensified training for teachers and began for drugs, while in 1993, there were training the police, community, students, 23. and parents. Under SMART, the school Part ofthe decrease in suspensions district conducts a needs assessment every can be attributed to a revised strategy of suspension. According to Ms. Madison,

Community Policing Conference• 157 instead ofsuspending students, the students Mr. Tumin concluded that the are "sentenced" to do community work. challenge for the coming years is to forge a Another component ofthe SMART natural bridge-between school-based program is student conflict mediation. management and community-based Students with problems can go to the student enforcement efforts-to help solve the conflict mediation committee to get advice problems ofcrime and disorder that are on resolving conflicts. Also, ifmembers of affecting school vitality. the committee observe conflicts, they can go Dr. Ellen Brickman presented to the administration to report the conflicts information on her work on violence or step in to help mediate a solution. prevention in middle schools. She pointed Zachary Tumin reported on New to risk factors, or those experiences that put York City's approach to combating violent children on a trajectory toward violence, as crime in the school system. He said, "The the focus ofprevention efforts. Dr. accumulation offear-inducing events creates Brickman asked a critical question that a critical mass ofonlookers who see helped define the scope ofher work in themselves as potential victims and fear for prevention: "Where do kids learn violent safety. When this happens, the terrain and responses to conflicts?" the possibilities for the institution change Exposure to violence in the family, considerably, putting its vitality at stake. on the street, and on television, along with The schools are certainly a prime example of access to firearms, are key influences on this today." children's responses to conflicts. Dr. Mr. Tumin noted that schools are Brickman reported that boys are more facing a tremendous challenge in combating likely than girls to be violent in a family violence and facilitating an environment relationship, while girls are more likely to be conducive to the'learning process. He the victims ofviolence. Using this suggested monitoring changes in street-level knowledge ofrisk factors, she worked to conditions and disorders, which the children develop a multifaceted violence prevention bring with them to school each day as program that focuses on conflict resolution, "baggage." Teachers offer the most help for including mediation, violence prevention, at-risk youth by molding, shaping, and counseling. For this effort, she remaking, and remodeling them. Schools conducted a survey of 1,300 students in the must become aggressive on their own behalf seventh and eighth grades to get baseline to deal with the problems of crime and data on their perspectives ofcrime and violence in the schools. violence. Some ofthe results are as follows: Mr. Tumin offered several • In all four schools, 59 percent had suggestions for meeting these challenges. seen a mugging, 48 percent had seen First, schools must reach outward to form a murder or someone who had been partnerships with other agencies that are murdered, and 20 percent had had active in the community, such as public their lives threatened. housing authorities, transit systems, police • In one school, 60 percent had seen a departments, child welfare agencies, parks murder or someone who had been and recreation departments, and others. murdered, and 27 percent had had "Left to their own devices," he said, their lives threatened. "agencies will observe their institutional • In two ofthe four schools, half the boundaries and let the problem migrate students carry weapons for elsewhere ifat all possible." protection. Over half reported it is

Community P.ollclng Conference• 158 easier to get weapons than drugs or Dr. Brickman said that to reduce the alcohol. multiplicity ofviolence and the • Halfthe students say "fighting gets corresponding risk factors in children's lives you respect." requires a comprehensive effort. For • Forty-two percent said they would community policing, it is important that seek revenge ifsomeone insulted or partnerships be formed with the schools and hurt their family. social service agencies. It is also important • Halfdisagreed with the statement to remember that violence is a learned that carrying a weapon earns no behavior; community policing, working with respect. others, can help young individuals unlearn and prevent violence.

Community Policing Conference• 159 Mediating _Disputes in the Community

Eric Garrison defined mediation as Moderator: Frederick E. Woods, Staff a system that empowers disputing parties to Attorney, Standing Committee on come to agreement without transferring this Dispute Resolution, American Bar power to someone else. Mediators he said Association ' ' must not have agendas favoring either party. Panelists: Karen Donegan, Attorney, A mediator's responsibility is to get Richmond, Virginia disputing parties to communicate and negotiate. Mr. Garrison outlined the tenns Eric B. Garrison, Director, D. C. ofADR by discussing the dispute resolution Mediation Services, D. C. Citizens process. Complaint Center, Washington, D. C. At the entry point, the disputing parties tend to avoid disputed issues but Mori Irvine, Civil ADR Training Manager, weigh opportunity costs and detennine Dispute Resolution Division for the whether it is worthwhile to engage further in Washington, D.C., Superior Court the dispute. At the next stage, both parties Frederick Woods began the session acknowledge the dispute but do not act. At by asking members ofthe audience to state the third stage, both parties recognize one briefly how they would like to benefit from another and decide to negotiate for their the presentation. Many participants wanted respective agendas. The fourth stage is ideas for how to improve mediation reached ifthere is an impasse in the programs already in operation; others negotiations. Then, a mediator is called wanted to know how to establish them. upon as a third party, though a mediator has While most respondents sought ideas in no power to enforce any decision. general, there were several particular themes Ifa decision cannot be reached with that emerged: a mediator, an arbitrator is called upon. An • How to overcome problems arbitrator decides the outcome of the case, associated with cultural diversity and both parties must comply with the • How to mediate situations that are decision. Ifarbitration does not yield not criminal, but to which police are resolution, the dispute then goes into called litigation. A lawyer is used to reach an • How to mediate landlord/tenant agreement at this point. Ifsettlement ofthe disputes dispute is not reached during litigation, the • How and what to consider in litigation then goes into adjudication. including a mediation component in With community policing, disputes Weed and Seed efforts often involve solving problems associated • How to build consensus in a divided with how to accomplish community policing community to better achieve (e.g., From where do we get community community policing policing officers? To which community are Mr. Woods then showed a short they deployed? Who pays for what?). The video that introduced the concept of community usually has no process through alternative dispute resolution (ADR). ADR which to resolve problems, while the police seeks to resolve disputes before a trial takes department does, by virtue of being place and, preferably, even before a lawyer organized and having resources. Decisions is needed. are reached faster and can be implemented within the organization. Disputes between

Community Policing Conference• 161 the community and police can be lessened if the same as that given to adults. The key both sides are aware ofwhat the other wants elements are listening, communication, and expects from the partnership as a whole. problem solving, and neutrality. The Mr. Garrison recommended that purpose ofconflict resolution is to heal, and police receive training in dispute resolution this begins with listening. ADR training but not necessarily that they be used as begins with teaching the importance of mediators. It is important that those in listening; people must hear what is being mediator roles be perceived as impartial; said and also what is not being said. however, police present themselves as Communication skills must be developed so authoritative and not impartial. The fact that that people know how to talk and listen to they have "guns, uniforms, and attitudes" one another. Problem solving involves self­ makes it difficult for the community to esteem building; thinking skills; problem accept officers as mediators. Police are and solution identification and evaluation; inclined to arbitrate and can enforce their and attempts not to impose solutions but decision through the threat ofarrest ofthose help parties reach resolution on their own. It wlio do not comply. The usefulness of is important that people learn how to have a mediation training for officers comes in the non-blaming and non-biased stance, to avoid handling ofsmall disputes that, left judging who is right or wrong. The goal is unattended, may become major disputes that to inculcate principles ofhow to accept do require police involvement. This can others who are different, rather than discuss enhance an officer's ability to assess and others' differences; and to talk openly about preempt conflict, and perhaps to make problems, concerns, or fears, rather than referrals to an ADR center. who is to blame. Karen Donegan has extensive Ms. Donegan also extolled the experience as a mediator and trainer in importance ofpolice training in ADR. mediation, and she specializes in building Police can serve as role models to espouse ADR skills in schools. She considers nonviolence to people, especially children, working with children and youth as critical in their handling ofdaily conflicts. She in building the capability ofthe community cited an article, appearing two days earlier in to solve its problems. ADR, she said, the Washington Post, that reported how the promotes community-building and the Fairfax County, Virginia, Community prevention ofviolence and drug use. Liaison Unit officers go into neighborhood Violent behavior is the result ofnot schools before trouble occurs to help perceiving alternatives to violence, she said. teenagers talk through their problems. ADR promotes nonviolence because once These officers serve as mediators between youth are armed with ADR, they can use it rival groups and teach youth how to deal for any situation. ADR prevents drug use with anger peacefully. The program is because when people can work out their based on the hope that nontraditional problems, they can overcome pain, feel good approaches will help curb an escalation of about themselves, and not have to resort to youth violence. Ms. Donegan strongly drug use to achieve this. The presence of objected, however, to the article's headline, mediation centers in schools and which referred to the unit as "the Touchy­ communities gives people a place where Feely Squad," and said that "ifwe continue they know someone will listen to their to refer to alternatives to violence in problems and care that they are solved. demeaning or diminishing terms, violence While Ms. Donegan teaches ADR to will never go away." youth, she emphasized that the training is

Community Policing Conference • 1,62 Mori Irvine is currently responsible parties "must be willing to agree to agree for recruiting, training, and evaluating and disagree." Also, she added, mediation ·approximately 450 attorneys who serve as must consider that conflict is based on mediators, arbitrators, and neutral case important needs and wants and that it is evaluators in the District Superior Court's difficult to satisfy all ofthese. She reiterated ADR programs. She stated that the other the comments ofothers in stating that panelists addressed much ofwhat she would communication must first improve before have said, but she added that interpersonal conflict can be resolved. While it is conflict must also be considered in dispute important to review the history ofthe resolution. Interpersonal conflict, she noted, conflict for factual information, the is based o~ personal values that people have, disputing parties must stop focusing on who and strong emotions and misperceptions are started the problem or how. "Conflict," Ms. often involved. To deal with problems that Irvine pointed out, "looks back, and stem from this, resolution must avoid mediation looks forward." d~tining problems in terms ofvalues, and

Community Policing Conference • 163 Technology and Community Safety

judgment for injuries resulting from a car Moderator: Patrick J. Sullivan, Jr., chase could save $100 million (the amount Sheriff, Arapahoe County, Colorado, ofa judgment recently levied against New Sheriffs Office York City). That sum, Dr. Boyd pointed Panelists: David G. Boyd, Director, out, is more than 53 times the NIJ budget for Science and Technologies Division, the development ofless than lethal weapons. National Institute ofJustice, U.S. For budgetary reasons, NIJ's Science Department ofJustice and Technologies Division works with off­ the-shelf technology from the military and John E. Granfield, Program Manager, industry, uses available technology that International Association of Chiefs of needs only moderate changes to be useful Police, Alexandria, Virginia for law enforcement, and only rarely builds technologies from scratch. Technology E. A. Burkhalter, Jr., Vice Admiral USN transfer is seen as the most cost-effective (Ret.), President, Burkhalter Associates, route. The research and development Washington, D. C. burden is eased by funding work in industry and in other government agencies. Harlin R. McEwen, Chief ofPolice, Among the law enforcement Ithaca, New York, Police Department scenarios that would benefit from new Dr. David Boyd noted that the technologies are cell extractions, high-speed National Institute ofJustice is the only chases, and officer gun confiscations. research and development source that most Technologies currently being tested include state and local law enforcement agencies aqueous foam (bubbles), sticky foam, and a have. NIJ looks for technology that is useful remote crisis intervention system, which to the user, that is, the cop on the street. consists oftiny, wearable video cameras and The Science and Technologies computers that transmit images and Division ofNIJ consists ofthe Office of information back to a central monitoring Law Enforcement Standards, the point. Information Center, the Technology John Granfield related how 2,000 Assessment Program Advisory Committee, years ago the Chinese used pepper as a and the Less Than Lethal Weapons Panel. weapon, throwing it into opponents' eyes. Why should government undertake Today, more than 2,000 law enforcement research and development in the criminal agencies in the United States use a justice field? Basically, because the scale of concentrated form ofpepper--oleoresin criminal justice is so large that even small capsicum (OC)-as an alternative to their percentage increases in efficiency or nightsticks. The OC is delivered in the form reductions in crime amount to major ofa spray or mist that is shot from a small improvements. For example, a 1 percent canister. reduction in murder and rape across the Used like such tear gases as CN and United States would mean 230 fewer CS, OC has several advantages over those murders and 1,000 fewer rapes per year. chemicals. A dose ofOC directed at a Similarly, preventing even one riot could suspect generally does not also contaminate save a billion dollars (the estimated cost of police, cellmates, desk officers, and others. the Los Angeles riots) and many lives (42 Because OC works by inflammation, not lost in those same riots). Preventing one tort irritation, it works well on people whose

Community Policing Conference• 165 nervous systems are not functioning had an idea ofhow well he could function normally, such as persons under the when suffering its effects. influence ofdrugs or alcohol. OC also Admiral Burkhalter heads a less works well on animals and is safe for than lethal weapons task force that works humans. with the Technology Assessment Program A drawback ofOC is that the Advisory Committee to ensure that various substance must hit the suspect's mouth, technologies are in fact useful for law nose, or eyes in order to be effective. By enforcement. For example, the task force is contrast, CN and CS vaporize, so when they helping NIJ study delivery systems for OC hit anywhere on the suspect's body, the in order to lessen the number ofitems an chemical vaporizes up to the face. officer must carry. One possible solution is OC is effective at disabling suspects the use ofbatons that also shoot out OC. and reduces the number of injuries that The task force is also examining various occur to both subjects and police officers forms of simulation to use in training. For during arrests. In Portland, Maine, subjects example, it hopes to develop scenario were injured in 69 percent ofarrests in 1990. practice methods for such dangerous police Then the police adopted the use of OC. activities as high-speed chases. Subject injuries dropped 88 percent in 1992, As chairman ofthe Technology and officer injuries dropped dramatically as Assessment Program Advisory Committee, well. Similarly, the Kansas City, Missouri, Chief McEwen emphasized the opportunity police have received no complaints from presented by changes in the U.S. military. subjects after 409 sprayings ofOC. As the military changes, law enforcement One conflict that has developed has the opportunity to acquire formerly regarding the implementation ofOC is over classified military technology. Also, money whether to spray" police officers with OC to that was traditionally spent on the military is familiarize them with its effects. Many being transferred to civilian use, and law police officers are less than eager to be enforcement is taking advantage ofthat sprayed, but proponents ofofficer spraying transfer. feel the process may help police develop Another technology-related empathy with sprayed subjects, understand opportunity for law enforcement comes from the decontamination process, and learn how the realm ofcomputers. Computers and well they (or a subject) can perform after other technologies can be used to ease being sprayed. officers' paperwork burdens and provide One officer in Howard County, them with more time out on the street, Maryland, was sprayed with OC during a interacting with the public. For example, conflict with a subject and was still able to placing a mobile data terminal with a laptop shoot the subject. The officer said he was computer in an officer's vehicle would able to function as well as he did because he enable the officer to fill out reports while he had been sprayed by his department. He or she is still out in the field. That technique therefore was not afraid ofthe chemical and would save time and keep officers out among the public longer.

Community Policing Conference• 166 Partnership Panel: Office for Victims of Crime

Joanne Tulonen directed a domestic Moderator: Duane Ragan, Training violence and child abuse program for the and Program Coordinator, Office for Seattle prosecutor before moving to Victims of Crime, U.S. Department of Maryland. The Seattle Police Department Justice had a mandatory arrest policy for domestic Panelists: Lucy N. Friedman, assault cases. Ms. Tulonen emphasized Executive Director, Victim Services that she does not want to see community Agency, New York, New York policing become a substitute for mandatory arrest, but she believes that community Joanne Tulonen, Executive Director, policing techniques can provide a valuable Maryland Alliance Against Family missing link in services to domestic violence Violence, Baltimore, Maryland victims. Victim assistance agencies never have enough staff to make personal visits in Mark Wynn, Sergeant, Nashville, all cases. One way to increase staff is to use Tennessee, Police Department battered women, perhaps employed through Dr. Lucy Friedman explained that a Volunteers In Service To America for 15 years, Victim Services Agency, a (VISTA) program, to work with other nonprofit organization in New York City, battered women. There is also a tremendous has provided an array ofservices to crime need for networks and safe houses for victims, including battered women. The battered women. For example, there is only agency assists 120,000 victims each year one battered women's shelter in the city of and has staff located in police precincts, Baltimore. hospitals, courts, and other agencies. Ms. Tulonen noted several ways in Typically, the workload for a full-time which community police officers could victim advocate involves reviewing 50 assist victims ofdomestic violence, e.g., by police reports a day, calling 15 victims, identifying informal community leaders, visiting 5, and handling 20 to 40 walk-n providing information about available requests. services, calling on certain homes to check This confer,ence, said Dr. Friedman, on children's safety, identifying families in presents a challenge to combine community trouble, serving as role models for children, policing and victim assistance objectives. and helping victims develop safety plans. Victims often feel powerless, isolated, Sergeant Mark Wynn referred to a frightened, and angry. Victim Services statement made by Stephen Goldsmith Agency has involved victims in helping run during a plenary session: "The soul ofa city support groups ( e.g., for homicide is in its neighborhoods." In Sergeant survivors). In addition, battered women Wynn's view, the soul ofa city is in its have provided training to police, an families. Children learn violence in violent experience that has been both educational homes. No crime has as great a power to for the officers and empowering for the destroy communities as domestic violence. victims. Victim Services would like to get Well-intended police and others "have killed more victims involved in crime prevention people through mediation," an approach and would welcome ideas for doing this. once widely advocated as an appropriate option in domestic assault cases. "To treat

Community Policing Conference• 167 this crime as a non-crime is a civil rights shelters to refugee camps. "What the Ku violation," he said. Klux Klan does to a community, battering Sergeant Wynn related some ofhis does to a family," he said. There are a personal experiences and feelings about number ofcities that have effective domestic growing up in a violent home, emphasizing violence programs and policies, and that he and the other children were like homicide rates in these cities are going prisoners ofwar. He compared domestic down. They include San Diego, Knoxville, violence to terrorism, and battered women's Newport News, Albuquerque, and Dallas.

Community Policing Conference • 168 Training Workshop: Introduction to Problem Solving

research study for a problem, but it is easy to Instructors: John E. Eck, Associate see whether or not the problem is still Director ofResearch, Police Executive happening. Research Forum, Washington, D. C. Lieutenant Susie Mowry provided a Susie Mowry, Lieutenant, Newport description ofthe entire SARA process. She News, Virginia, Police Department began by stating that an advantage ofthis process for police departments is that it can This workshop examined problem be done without extra officers, supplemental solving by discussing the basic SARA income, or overtime. model. SARA stands for scanning, analysis, Scanning is the identification ofthe response, and assessment. The focus ofthe problem. It is irrelevant whether this is done workshop was how problem solving can by a line officer, a city manager, a make community policing easier. community resident, or the media_. For John Eck began the workshop with officers, determining problems often occurs a background ofthe SARA process. In when making site visits or by talking with 1984, the Police Executive Research Forum residents or other officers. A problem needs in conjunction with the Newport News, to be taken to the next step of SARA when Virginia, Police Department, was awarded a two or more incidents occur that are alike in grant from NIJ to create a basic model of nature or when they can cause injury and the problem solving that could be taught to police are expected to handle them. police officers over a two-day training Analysis consists oftwo major session. questions: (1) What do I need to know about The advantage ofthe SARA model is the problem? and (2) Where do.I need to go that it is basic enough to be the core ofany to get information? A survey can be done to type ofproblem solving. Prior to this see ifothers perceive a problem as well. model, it seemed that officers would skip the Sometimes a police officer may find that a two A's (analysis and assessment). That is community's top problem isn't violent crime what most needs to be developed in training but abandoned cars. For many officers, the an agency. It is not a question ofresistance response is the fun part and the analysis is to change; the officers just did not want to better left to researchers. However, it get confused or make things complicated, so becomes apparent that the response _cannot the model was made simple and flexible. be effective ifthe problem has not _been The SARA model is very similar to many analyzed. It is also important to note that other planning processes, and it can be one does not have to give up traditional modified, abandoned, or replaced. It policing in order to solve problems. provides, however, an excellent starting Problem solving is best suited for recurrent point. "hot spots." Mr. Eck concluded by stating that Response planning must recognize problem solving is less effective and more that the cause ofa problem is, in fact, the time-consuming without community · real problem. Not every response can result participation. All major stakeholders in the in complete elimination ofthe problem, but problem need to be involved in the solution. a solution can be designed to eliminate the In that way, the solution's success is easily problem, reduce the problem, deal with a analyzed. One can develop a complex problem better, or remove the problem from

Community Policing Conference• 169 police consideration. Removing the complainant and discovered that cows in the problem from police consideration means area had been shot and killed, trees were handing it over to an agency better equipped dying oflead poisoning, and the to deal with the problem. complainant himself had been fired upon. Assessment means looking at the The officer collected six-inch long cartridges solution to see if it works. Assessment is and .45 caliber slugs as physical evidence. necessary throughout the process, not solely He also interviewed other officers who had after response. This is the most important responded to these calls. He found that stage, because effectiveness defines the although many officers had responded, no extent to which a program achieves its goals one had ever caught a person on the or produces certain results. The findings complainant's premises. from an assessment must be usable, to help The officer then used several the officer understand why the problem was different response techniques. He got power solved, reduced in scope, or not affected. ofattorney from the owner ofthe property in Assessment needs to be done in a way that is order to prosecute for trespassing. He also reievant to the assessor. In other words, for received permission from the railroad a police officer, the questions that need to be company to prosecute violators on those answered include these: premises. He then discovered that people • Were there fewer calls for service were parking near the lots on the street, so relating to the problem? he arranged to post "No Parking" signs all • Were the residents satisfied? around the vacant lots near the complainant's • Did the policy makers notice a house. Finally, the officer met with the difference in complaints? judge, who took judicial notice that any An actual example was given ofa person visiting those lots would be police officer in Newport News who used trespassing and that discharge ofa weapon the SARA model effectively. The police there would also be illegal. department was receiving repeated calls for The officer wrote letters to the service to the same house, for gunshots military and the gun shops. The whole being fired on vacant lots near the house. assessment ofresults was done by the officer Whenever the police responded, no one was over a span offive years. He found that around. The officer then decided to scan, to there had not been one call for service since check for other indicators ofa problem. He 1985, and the citizen is satisfied. The then analyzed 60 calls for service that officer spent 15 hours, in total, using a occurred within 45 days. The calls were all problem solving model. Previously, from one individual complaining about complaints in the matter had taken 20 hours gunshots. The officer interviewed the a week in other officers' time.

Community Policing Conference• 170 Appendix _ Community Policing for Safe Neighborhoods Partnerships for the 21st Century · Speaker List

David L. Armstrong Peter D. Blauvelt Judge/Executive Chairperson ofthe Board Jefferson County Courthouse National Association of School 527 W. Jefferson Street Safety and Law Enforcement Office Louisville, KY 40202 507 Largo Road 502-574-5359 Upper Marlboro, MD 20772 301-336-5400

Virginia B. Baldau Director, Research Applications Barbara Bostick-Hunt and Training Division Executive Director National Institute ofJustice Community Building in Partnership U.S. Department ofJustice Sandtown-Winchester Project 633 Indiana Avenue, N.W. 1137 North Gilmore Street Washington, DC 20530 Baltimore, MD 21217 202-514-6204 410-728-8607 202-307-6394 410-462-6869

Ted Balistreri David G. Boyd Captain Director Madison Police Department Science and Technologies Division 835 West Badger Road National Institute ofJustice Madison, WI 53713 U.S. Department ofJustice 608-266-5939 633 Indiana Avenue, N.W. 608-266-4453 Washington, DC 20531 202-307-2942

Joe Balles Sergeant William J. Bratton Madison Police Department Police Commissioner 211 South Carroll Street Boston Police Department· Madison, WI 53710 154 Berkley Street 608-266-5939 Boston, MA 02116 617-343-4500 Ellen Brickman Jonathan Budd Director ofResearch Program Manager Victim Services Agency Research and Program Dev. Division 346 Broadway, Room 206 Office ofJuvenile Justice and New York, NY 10013 Delinquency Prevention 212-577-7700 633 Indiana A venue 212-385-0331 Washington, DC 20531 202-514-6235

David W. Brown ChiefofPolice Michael Buerger Tempe Police Department Visiting Fellow 120 East Fifth Street National Institute ofJustice Tempe, AZ 85280 U.S. Department ofJustice 602-350-8215 633 Indiana Avenue, N.W. 602-350-8337 Washington, DC 20531 202-307-0500

Clara K. Brown Chairperson V ADM E.A. Burkhalter, Jr. Columbus S.A.L.T. Council President 6400 Green Island Drive, #6 Burkhalter Associates Columbus, GA ~ 1904 800 Connecticut Avenue, N.W. 706-322-3801 Suite 700 Washington, DC 20006 202-857-0191 LeeP. Brown Director Office ofNational Drug Control Policy John A. Calhoun Executive Office ofthe President Executive Director 750 17th Street, N.W. National Crime Prevention.Council Washington, DC 20500 1700 K Street, N.W., 2nd Floor 202-514-2000 Washington, DC 20006-3817 202-466-6272 202-296-1356 Robert H. Brown, Jr. Chief, Crime Prevention Branch Bureau ofJustice Assistance Betsy Cantrell U.S. Department ofJustice Director 633 Indiana Avenue, N.W. Crime Prevention Triad Washington, DC 20531 National Sheriffs' Association 202-616-3297 1450 Duke Street Alexandria, VA 22314 703-836-7827

2 George E. Capowich George C. Crawley Criminal Justice Consultant Assistant City Manager for 4917 Ridgewood Road Public Safety Alexandria, VA 22312 City ofNorfolk 703-750-1189 1IO1 Union Street City Hall Building Norfolk, VA 23501 Robert Coates 804-441-2471 Senior Manager 804-626-0952 Neighborhood Policing Services National Crime Prevention Council 1700 K Street, N.W., 2nd Floor Marilyn Culp Washington, DC 20006-3817 Executive Director 202-466-6272 Miami Coalition for a Drug-Free Community University ofMiami Elizabeth Cocke 400 S.E. Second, Avenue Program Analyst 4th Floor Drug-Free Neighborhood Division Miami, FL 33131 Office ofPublic and Indian Housing 305-375-8032 U.S. Department ofHousing and Urban Development 451 7th Street, S.W., Room 4116 G. David Curry Washington, DC 20410 Associate Professor 202-708-1197 Department ofSociology and Anthropology West Virginia University JayM. Cohen P.O. Box 6326 Deputy District Attorney Morgantown, WV 26506 Kings County District Attorney's 304-293-3569 Office 210 Joralemon Street Brooklyn, NY 11201 Abdelkarim A. Darwish 718-802-2156 Research Associate 718-852-8705 Office ofInternational Criminal Justice University ofIllinois at Chicago 740 W. 31st Street Chicago, IL 60616 312-996-9595

3 Sylvester Daughtry Edwin J. Donovan ChiefofPolice Assistant Professor Greensboro Police Department Administration ofJustice P.O. Box 3136 Pennsylvania State University Greensboro, NC 27402 914 Oswald Tower 919-373-2450 University Park, PA 16802 814-863-0277 814-863-7044 Beverly Watts Davis Executive Director San Antonio Fighting Back of John Doyle United Way Project Director 1023 North Pine National Sheriffs' Association San Antonio, TX 78202 1450 Duke Street 210-299-1057 Alexandria, VA 22314 703-836-7827

Julius Debro Associate Dean ofGraduate JohnE. Eck School Executive Director University of Washington Crime Control Institute 201 Administration Building, AG-10 1063 Thomas Jefferson Street, N.W. Seattle, WA 98125 Washington, DC 20007 206-543-5900 202-337-2700

Scott Decker Peter Edelman Professor, Chair Counselor to the Secretary Criminology and Criminal Justice U.S. Department ofHealth and Department Human Services University ofMissouri at St. Louis 200 Independence A venue, S.W. 598 Lucas Hall, 8001 National Washington, DC 20201 Bridge Road 202-690-8157 St. Louis, MO 63121 314-553-5031 Clarence Edwards Chief ofPolice Karen Donegan Montgomery County Department Attorney ofPolice 2301 Park Avenue 2350 Research Blvd. Richmond, VA 23220 Rockville, MD 20850 804-358-7811 301-279-1052 301-217-4095

4 Dean M. Esserman A. Tony Fisher Assistant Chief ofPolice ChiefofPolice New Haven Police Department Takoma Park Police Department 1 Union A venue 7500 Maple Avenue New Haven, CT 06519 Takoma Park, MD 20912 203-787-6266 301-270-1100 203-772-7294

Gayle Fisher-Stewart Paul F. Evans President Superintendent-in-Chief DA'VO, Ltd. Boston Police Department 7515 Dundalk Road 154 Berkeley Street Takoma Park, MD 20912-4122 Boston, MA 02116 301-589-3032 617-343-4577 617-343-4480 Dan W. Fleissner Planning Manager Julian Fantino Seattle Police Department Chief ofPolice ISD-156 610 Third Avenue London Police Force Seattle, WA 98104 601 Dundas Street 206-684-5758 London, Ontario N6B lXl 206-684-8197 519-661-5670 519-661-5999 Charles C. Foti, Jr. Criminal Sheriff Peter Finn Orleans Parish Criminal Research Analyst Sheriff's Office Abt Associates 2800 Gravier Street 55 Wheller Street New Orleans, LA 70119 Cambridge, MA 02138 504-827-8501 617-492-7100

Craig B. Fraser William K. Finney Director ofTraining Chief ofPolice Richmond Police Training Academy St. Paul Police Department Richmond Police Department 100 East 11th Street 1202 West Graham Road St. Paul, MN 55101 Richmond, VA 23220 804-780-6119 804-780-6193

s Lucy N. Friedman Phyllis Gervais-Voss Executive Director Project Director Victim Services Agency La Plata Prevention Partners 2 Lafayette Street La Plata County Hospital New York, NY 10007 District 212-577-7700 3801 North Main Avenue Durango, CO 81301 303-259-2166 Stephen J. Gaffigan 303-247-4322 Project Director International Association of Chiefs ofPolice Stephen Glaude 515 North Washington President Alexandria, VA 22314 Hillen Group 703-836-6767 1701 K Street, N.W., Suite 400 Washington, DC 20006 202-331-2483 Eric B. Garrison Director ofD.C. Mediation Services Stephen Goldsmith D.C. Citizens Complaint Center Mayor Superior Court Building City ofIndianapolis 515 5th Street, ~.W. 2501 City County Building Washington, DC 20001 200 East Washington 202-724-8215 Indianapolis, IN 46204 202-724-7999 317-327-7977

William A. Geller Herman Goldstein Associate Director Professor Police Executive Research Forum University of Wisconsin-Madison 2116 Thomwood Avenue 975 Bascom Mall Wilmette, IL 60091 Madison, WI 53706 708-256-0017 608-262-1227 708-256-0111

Heike Gramckow Andrew J. George Research Associate Sergeant Jefferson Institute for Justice Lansing Police Department Studies 120 West Michigan Avenue 1910 K Street, N.W., Suite 601 Lansing, MI 48933 Washington, DC 20006 517-483-4663 202-659-2882 517-483-4824

6 John E. Granfield Ron Hadfield Program Manager Chief Constable International Association of West Midlands Police Chiefs ofPolice Colmore Sircus Queensway 515 North Washington Birmingham, England, B46NQ Alexandria, VA 22314 011-44-21-236-5000 703-836-6767

Donna L. Hansen Kimi 0. Gray Chiefof Police President Ft. Myers Police Department Kenilworth/Parkside Resident 2210 Peck Street Management Corporation Ft. Myers, FL 33901 4500 Quarles Street, N.E. 813-338-2153 Washington, DC 20019 813-334-2539 202-399-4477

Carl R. Harbaugh Lorraine Green Sheriff Assistant Professor Frederick County Sheriffs Office College of Criminal Justice 100 W. Patrick Street Northeastern University Frederick, MD 21701 360 Huntington A,venue 301-694-2071 Boston, MA 02115 301-694-1011 617-373-2000

Clarence Harmon Kim Greene Chief of Police Project Director St. Louis Police Department Miami Coalition for a 1200 Clark Drug-Free Community St. Louis, MO 63103 University of Miami 314-444-5624 400 S.E. Second Avenue 314-444-5958 4th Floor Miami, FL 33131 305-375-8032 Adele V. Harrell 305-371-6645 Senior Research Analyst Urban Institute 2100 M Street, N.W. Randolph M. Grine Washington, DC 20037 Senior Research Associate 202-857-8738 Vera Institute ofJustice 377 Broadway New York, NY 10013 212-334-1300

7 Steven R. Harris Astrid Heger, M.D. Chief ofPolice Director, Suspected Child Abuse Redmond Police Department and Neglect Program 15670 N.E. 85th School of Medicine Redmond, WA 98052 University ofSouthern California 206-556-2528 1129 North State Street Pediatrics - Trailer II Los Angeles, CA 90033 213-226-3961 Frank Hartmann 213-226-2573 Executive Director Program in Criminal Justice Policy and Management Gerard J. Hoetmer Kennedy School ofGovernment Assistant Executive Director Harvard University International City/County 79 JFK Street Management Association Cambridge, MA 02138 777 North Capitol Street, N.E. 617-495-5188 Washington, DC 20002 202-962-3634

David Hayeslip James C. Howell Program Manager Director Evaluation Division Research and Program Development National Institute ofJustice Division U.S. Department ofJustice Office ofJuvenile Justice and 633 Indiana Avenue, N.W. Delinquency Prevention Washington, DC 20531 633 Indiana Avenue, N.W. 202-307-2959 Washington, DC 20531 202-307-0586

Elaine S. Hedtke Wayne Huggins ChiefofPolice Executive Director Tucson Police Department Commission on Accreditation for 270 S. Stone Law Enforcement Agencies Tucson, AZ 85701 10306 Eaton Place, Suite 320 602-791-4441 Fairfax, VA 22030 703-352-4225 703-591-2206

8 Beth Hughes Gil Kerlikowske Executive Director Chiefof Police Columbus Housing Partnership Ft. Pierce Police Department 610 Neil Avenue P.O. Box 1149 Columbus, OH 43215 Ft. Pierce, FL 34954 614-221-8889 407-461-3820 407-468-6867

Mori Irvine Civil ADR Training Manager Alex Kinlaw Multi-Door Dispute Resolution Division Project Coordinator for the Superior Court ofD.C. Police Neighborhood Resource 500 Indiana Avenue, N.W. Center Program Room4242 Greensboro Police Department Washington, DC 20001 300 W. Washington Street 202-879-1774 Greensboro, NC 27402 919-373-2262

Joan E. Jacoby Executive Director Felice Kirby Jefferson Institute for Justice Director Studies Neighborhood Anti-Crime Center 1910 K Street, N.W., Suite 601 Citizens Committee for Washington, DC 20006 New York City 202-659-2882 305 Seventh Avenue 202-659-2885 New York, NY 10001 212-989-0909

Johnnie Johnson, Jr. Chief ofPolice Robert B. Kliesmet Birmingham Police Department President 417 6th A venue, South International Union ofPolice Birmingham, AL 35205 Associations-AFL-CIO 205-254-1700 1016 Duke Street Alexandria, VA 22314 703-549-7473 William Johnston Deputy Superintendent Thomas G. Koby Bureau ofInvestigative Service Chief ofPolice Boston Police Department Boulder Police Department 154 Berkley 1805 33rd Street Boston, MA 02116 Boulder, CO 80301 617-343-4527 303-441-3310 617-343-4780 303-441-4330

9 Ronald C. Laney Steven Marans Acting Coordinator, Missing Harris Assistant Professor & Exploited Childrens Program ofChild Psychoanalysis Office ofJuvenile Justice and School ofMedicine Delinquency Prevention Yale University 633 Indiana A venue P.O. Box 3333 Washington, DC 20531 New Haven, CT 06510 202-307-5940 203-785-3377

Deidre Levdansky Marsha A. Martin Executive Director Executive Director Pittsburgh Mediation Center Interagency Council on the 2205 E. Carson Street Homeless Pittsburgh, PA 15203 451 7th Street, S.W., Room 7274 412-381-4443 Washington, DC 20410 412-481-5601 202-708-7480

Richard Lewis Emily C. Martin Research Associate Director Police Executive Research Forum Training & Technical Assistance 2300 M Street, l'fW., Suite 910 Office ofJuvenile Justice and Washington, DC 20037 Delinquency Prevention 202-466-7820 633 Indiana Avenue, N.W. Washington, DC 20531 202-307-5940 Alexander N. Luvall Second Deputy Chief/Liaison Detroit Police Department Stephen D. Mastrofski 1300 Beaubien, Room 309 Visiting Fellow Detroit, MI 48226 National Institute ofJustice 313-596-1835 U.S. Department ofJustice 313-596-1579 633 Indiana A venue, N. W. Washington, DC 20531 202-307-2963 Ann B. Madison Director, Human Relations and Staff Development Jennifer Adams Mastrofski Norfolk School District Faculty Associate P.O. Box 1357 Center for Research in Conflict Norfolk, VA 23501 and Negotiations 804-441-2780 Pennsylvania State University University Park, PA 16802 814-237-3882

IO Bobby Mathieson Carole Miller Master Police Officer Assistant Director, Neighborhood Virginia Beach Police Department Based Alliance Program 319 18th Street New York State Department of Virginia Beach, VA 23451 Social Service 804-428-9133 40 North Pearl Street Albany, NY 12243 518-474-0013 William H. Matthews Director ofCommunity Policing and Criminal Justice Programs William Modzeleski International City/County Director, Drug Planning and Management Association Outreach Staff 777 North Capitol Street, N.E. U.S. Department ofEducation Washington, DC 20002 400 Maryland Avenue, S.W. 202-962-3532 Room 1073 202-962-3500 Washington, DC 20202-6123 202-401-3030

J. Thomas McEwen Principal Dave Mora Institute for Law and Justice City Manager 1018 Duke Street City ofSalinas Alexandria, VA 22314 200 Lincoln 703-684-5300 Salinas, CA 93901 408-758-7412 408-758-7368 Harlin R. McEwen ChiefofPolice Ithaca Police Department Steve Morreale 120 East Clinton Special Agent Ithaca, NY 14850-5689 Drug Demand Reduction Coordinator 607-272-3245 U.S. Drug Enforcement Administration 700 Army-Navy Drive Arlington, VA 22202 Robert D. Miller 202-307-7936 Director NRP/C.A.R.E. Program Jane Morrison 105 Fifth Avenue South, Room 425 Project Director Minneapolis, MN 55401 Boston Against Drugs Through 612-673-5141 Empowerment and Mobilization City Hall, Room 708 Boston, MA 02201 617-635-3283 617-635-3498

11 Susie Mowry Robert K. Olson Lieutenant Commissioner ofPolice Newport News Police Department City of Yonkers 2600 Washington A venue 104 South Broadway Newport News, VA 23607 Yonkers, NY 10701 202-466-7820 914-377-7202 914-377-7213

Patrick V. Murphy Director Terry Orr Police Policy Board Director ofYouth Fair U.S. Conference ofMayors Chance Demonstration Evaluation 1620 I Street, N.W., 4th Floor Academy for Educational Washington, DC 20006 Development 202-293-7330 100 5th A venue New York, NY 10011 212-243-1110 John O'Connell Director Delaware Statistical Analysis Ana Palmer Center Executive Assistant 60ThePlaz.a Office ofEmployment Development Dover, DE 19901 417 E. Fayette Street 302-739-4846 Baltimore, MD 21202 410-396-1910

.Rose Ochi Director Antony Pate Criminal Justice Planning Office Director ofResearch City ofLos Angeles Police Foundation 200 North Spring Street, Room 1404 1001 22nd Street, N.W., Suite 200 Los Angeles, CA 90012 Washington, DC 20037 213-485-5707 202-833-1460

Timothy N. Oettmeier Lee Pearson Lieutenant Assistant Manager Houston Police Training Academy Criminal Justice Services Houston Police Department American Association ofRetired 17000 Aldine Westfield Road Persons Houston, TX 77073 601 E Street, N.W. 713-230-2312 Washington, DC 20049 713-230-2314 202-434-2222 202-434-6474

12 Susan Pennell Robert J. Prinslow Director Sheriff Criminal Justice Research Division Marion County Sheriffs Office San Diego Association ofGovernments 100 High Street, N .E. 401 B Street, Suite 800 Salem, OR 97308 San Diego, CA 92101 503-588-5116 619-595-5383 503-588-7931

Carol Petrie Roger Przybylski Director Coordinator ofResearch Planning and Management Chicago Police Department National Institute ofJustice 721 S. State U.S. Department ofJustice Chicago, IL 60605 633 Indiana Avenue, N.W. 312-747-6203 Washington, DC 20531 202-307-2942 Duane Ragan Training and Program Coordinator Randall Phillips Office for Victims ofCrime Community Leader U.S. Department ofJustice Muskegon Heights Neighborhood 633 Indiana Avenue, N.W. Association Washington, DC 20531 2401 Baker Street 202-307-5948 Muskegon, MI 49444 616-733-9874 Larry Ray Director Kenneth Powell Section ofDispute Resolution Medical Epidemiologist American Bar Association National Center for Injury 1800 M Street, N.W. Prevention and Control Washington, DC 20036 Mail Stop K-60 202-331-2660 Atlanta, GA 30333 202-331-2220 404-488-4646

Janet Reno David J. Powers United States Attorney General Lieutenant/Chiefs Executive U.S. Department ofJustice Assistant Main Justice Building Los Angeles Police Department 10th and Constitution Avenue, N.W. P.O. Box 30158 Washington , DC 20530 Los Angeles, CA 90030 202-514-2001 213-485-3202

13 Jim Roache William M. Rohe Sheriff Professor ofCity and Regional San Diego County Sheriffs Planning Department University ofNorth Carolina 9621 Ridgehaven Court at Chapel Hill San Diego, CA 92123 CB #3140 619-974-2240 Chapel Hill, NC 27599 619-974-2244 919-962-5204 919-962-5206

Laurie Robinson Acting Assistant Attorney Dennis P. Rosenbaum General Director, Center for Research Office ofJustice Programs in Law and Justice U.S. Department ofJustice University ofIllinois at Chicago 633 Indiana Avenue, N.W. P.O. Box 4348 (MIC 2222) Washington, DC 20531 Chicago, IL 60607 202-307-5933 312-996-7199

George A. Rodriguez Paula N. Rubin Special Agent in Charge Visiting Fellow Los Angeles Fie~d Division National Institute ofJustice Bureau of Alcohol, Tobacco, U.S. Department of Justice and Firearms 633 Indiana Avenue, N.W. 350 South Figueroa, Room 800 Washington, DC 20531 Los Angeles, CA 90071 202-307-0649 213-894-4812 213-894-0105 Julie Rusk Manager Matt L. Rodriguez Human Services Division Superintendent of Police City of Santa Monica Chicago Police Department 1685 Main Street, Room 212 1121 South State Street Santa Monica, CA 90401 Chicago, IL 60605 310-458-8701 312-747-5501 312-747-2430

14 Michael J. Russell Rana Sampson Acting Director White House Fellow National Institute ofJustice White House Domestic Policy U.S. Department ofJustice Council 633 Indiana Avenue, N.W. Executive Office ofthe President Washington, DC 20531 Room217 202-307-2942 Washington, DC 20500 202-456-2164 202-456-7739 Joseph Ryan Visiting Fellow National Institute ofJustice Peter Scharf U.S. Department ofJustice Director ofTechnology and Technical 63_3 Indiana A venue, N. W. Assistance Washington, DC 20531 Police Foundation 202-307-2964 1001 22nd Street, N.W., Suite 200 Washington, DC 20037 202-83 3-1460 Susan Sadd Project Director Vera Institute ofJustice Ellen Scrivner 377 Broadway Visiting Fellow New York, NY 10013 National Institute ofJustice 212-334-1300 U.S. Department ofJustice 212-941-9407 633 Indiana Avenue, N.W. Washington, DC 20531 202-307-2955 Diane M. Salen Corporal Prince George's County Police Department Jeff Seifert 7600 Barlowe Road Executive Director Landover, MD 20785 Ecumenical Social Action 301-336-8800 Committee P.O. Box4 3134 Washington Street Jamaica Plain, MA 02130 617-524-2555

15 Billy Sifuentes Ronald Stephens Senior Officer Executive Director Austin Police Department National School Safety Center 715 East 8th Street 4165 Thousand Oaks Blvd., Suite 290 Austin, TX 78701 Westlake Village, CA 91362 512-480-5000 805-373-9277

Andrew L. Sonner Dewey R. Stokes State's Attorney National President Montgomery County, Maryland Fraternal Order ofPolice 50 Courthouse Square, 5th Floor 520 South High Street, Suite 205 Rockville, MD 20850 Columbus, OH 43215 301-217-7300 614-221-0180 301-217-7441 614-221-0815

John Spevacek Patrick J. Sullivan, Jr. Director, DUF Program Sheriff National Institute ofJustice Arapahoe County Sheriffs U.S. Department ofJustice Office 633 Indiana Avenue, N.W. 5686 S. Court Place Washington, DC 20531 Littleton, CO 80120 202-307-0466 303-795-4701 303-797-4444

Norm Stamper Executive Assistant Chief Michele Sviridoff San Diego Police Department Director ofResearch 1401 Broadway Midtown Community Court Project San Diego, CA 9210 I The Fund for the City of 619-531-2705 New York 619-531-2530 121 Sixth A venue New York, NY 10013 212-925-6675 Darrel W. Stephens 212-925-5675 Chief ofPolice St. Petersburg Police Department 1300 First Avenue, North Marty M. Tapscott St. Petersburg, FL 33705 Chief ofPolice 813-892-5577 Richmond Police Department 501 9th Street Richmond, VA 23219 804-780-6700 804-644-1210

16 Fred Thomas Zachary Tumin Chief of Police Executive Director Metropolitan Police Department Division ofSchool Safety 300 Indiana Avenue, N.W. New York City Public Schools Washington, DC 20001 600 East 6th Street 202-727-4218 New York, NY 10009 212-979-3284 212-979-3283 Albert J. Toczydlowski Assistant District Attorney Chief, LINE Program Ed Turley Philadelphia District Attorney's Deputy Director Office Community Youth Gang Services 1421 Arch Street 1821 W. 60th Street Philadelphia, PA 19102 Los Angeles, CA 90047 215-686-8700 213-778-9470

Robert Trojanowicz Craig Uchida Director, National Center for Acting Director Community Policing Office ofCriminal Justice Research School ofCriminal Justice National Institute ofJustice Michigan State University U.S. Department ofJustice 560 Baker Hall 633 Indiana Avenue, N.W. East Lansing, MI 48824 Washington, DC 20531 517-355-2322 202-307-2959 517-336-1787

Bill Walsh Joanne Tulonen Lieutenant Executive Director Dallas Police Department Maryland Alliance Against 106 S. Harwood, Room 225 Family Violence Dallas, TX 75201 University ofMaryland 214-670-7075 525 W. Redwood Street 214-670-5099 Baltimore, MD 21201 410-706-5472 William F. Walsh Director Southern Police Institute School ofJustice University ofLouisville Louisville, KY 40292 502-588-0330 502-588-0335

17 Richard H. Ward Ralph A. Weisheit Acting Director, Discretionary Professor Grant Programs Division Deparbnent ofCriminal Justice Bureau ofJustice Assistance Illinois State University U.S. Deparbnent ofJustice Normal, IL 61761 633 Indiana Avenue, N.W. 309-438-5038 Washington, DC 20531 309-438-7289 202-514-5943

Chuck Wexler Richard H. Ward Executive Director Associate Chancellor Police Executive Research Forum University ofIllinois at Chicago 2300 M Street, N.W., Suite 910 1033 West Van Bureau MIC 777 Washington, DC 20037 Chicago, IL 60607 202-466-7820 312-996-2614 202-466-7826

Elizabeth M. Watson Debra Whitcomb ChiefofPolice Senior Research Associate Austin Police Deparbnent Education Development Center, Inc. 715 E. 8th Street 55 Chapel Street Austin, TX 78791 Newton,MA 02160 512-480-5209 617-969-7100 617-244-3436

Steven D. Weaver ChiefofPolice Cathy Spatz Widom Newport Police Deparbnent Professor, Criminal Justice and 120 Broadway Psychology Newport, RI 02840 School ofCriminal Justice 401-847-1306 University ofAlbany 401-849-0214 135 Western Avenue Albany, NY 12222 518-442-5603 Deborah Lamm Weisel 518-442-5226 Senior Research Associate Police Executive Research Forum 16 West Martin Street, Suite 806 Raleigh, NC 27601 919-834-0078 919-834-0049

18 Gerald Williams Joseph M. Wright Director, Law Enforcement, Executive Director Education, and Research Project National Organization ofBlack North Carolina State University Law Enforcement Executives P.O. Box 8102 908 Pennsylvania A venue, SE Raleigh, NC 27695 Washington, DC 20003 919-515-5071 202-546-8811 202-544-8351

Dave Williams Assistant Chief Mary Ann Wycoff Portland Police Bureau Project Director 1111 S.W. 2nd Avenue Police Foundation Portland, OR 97204 767 Chesapeake Drive 503-823-0000 Tarpon Springs, FL 34689 503-823-0342 813-938-3766 813-934-6886

John J. Wilson Acting Assistant Attorney General Mark Wynn Office ofJustice Programs Sergeant U.S. Department ofJustice Nashville Police Department 633 IndianaAve~ue, N.W. 200 James Robertson Pkwy. Washington, DC 20531 Nashville, 1N 37201 202-307-5933 615-862-7747

Frederick E. Woods David Yang StaffAttorney Officer Standing Committee on Dispute Resolution St. Paul Police Department American Bar Association ACOP 1541 Timberlake Road 1800 M Street, N.W. St. Paul, MN 55117 Washington, DC 20036 612-488-9272 202-331-2200

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