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Implementing Community Policing: Lessons from 12 Agencies U.S. Department of Justice Offi ce of Community Oriented Policing Services IMPLEMENTING COMMUNITY POLICING: LESSONS FROM 12 AGENCIES IMPLEMENTING COMMUNITY POLICING: Lessons from 12 Agencies Edited by Edward Maguire Associate Professor American University and William Wells Associate Professor Sam Houston State University July 2009 This project was supported by Grant Number 2001CKWX0001 awarded by the Office of Community Oriented Policing Services, U.S. Department of Justice. The opinions contained herein are those of the authors and do not necessarily represent the official position or policies of the U.S. Department of Justice. References to specific agencies, companies, products, or services should not be considered an endorsement by the authors or the U.S. Department of Justice. Rather, the references are illustrations to supplement discussion of the issues. The Internet references cited in this publication were valid as of July 2009. Given that URLs and web sites are in constant flux, neither the authors nor the COPS Office can vouch for their current validity. ISBN: 978-1-935676-44-7 Contents Contents Acknowledgments . .VII About the Contributors . XI Introduction: Making Sense of Community Policing William Wells and Edward Maguire . .XV PART ONE: ISSUES AND THEMES IN COMMUNITY POLICING . 1 CHAPTER 1. Community Partnerships William Wells . 3 CHAPTER 2. Problem Solving William Wells . 13 CHAPTER 3. Decentralization and Geographic Accountability Edward Maguire and Megan Gantley . 35 CHAPTER 4. Specialist and Generalist Models Edward Maguire and Megan Gantley . 45 CHAPTER 5. Information and Analysis Jeffrey Snipes and Charles Katz. 57 CHAPTER 6. Civilianization William King . 65 CHAPTER 7. Performance Appraisal Systems William Wells . 71 CHAPTER 8. Internal and External Communications William Wells and Edward Maguire . 79 PART TWO: CASE STUDIES OF 12 COMMUNITY POLICING AGENCIES . 97 CHAPTER 9. Billings, Montana William Wells and Alex Robinson . 99 CHAPTER 10. Colorado Springs, Colorado William Wells and Mike Wells . 105 CHAPTER 11. Concord, California Charles M. Katz and Michael Kelly . 111 CHAPTER 12. Green Bay, Wisconsin William Wells and John Fisher . 117 vv IMPLEMENTING COMMUNITY POLICING: Lessons from 12 Agencies CHAPTER 13. Greenville, South Carolina William King and Randall Shields . 123 CHAPTER 14. Hillsborough County, Florida Eugene Paoline and Suzanne Devlin . 127 CHAPTER 15. Knoxville, Tennessee William Wells and Mike Garrihy . 135 CHAPTER 16. Lowell, Massachusetts William King and Randall Shields . 141 CHAPTER 17. Naperville, Illinois Charles Katz and Kent Shafer . 145 CHAPTER 18. Newport News, Virginia Edward Maguire, Craig Huneycutt, and Megan Gantley . 153 CHAPTER 19. Portland, Oregon Charles Katz and Michael Wells . 161 CHAPTER 20. Reno, Nevada Charles Katz and Robert Heimberger . 167 CHAPTER 21. The Future of Community Policing Edward Maguire and William Wells . 173 Endnotes. 185 References . 201 vi Acknowledgments ACKNOWLEDGMENTS This project would not have been possible without the commitment and support of many people. University restrictions on revealing names of research participants do not permit us to thank all the individuals who allowed us to interview them and to observe their work in the fi eld. Therefore, we thank those who must remain anonymous as a group for their terrifi c contributions to this project. We assembled a team with formidable expertise to carry out the research and write the chapters contained in this volume. Each researcher partnered with an active or retired police practitioner to conduct each site visit. We are grateful to the team members for their individual contributions. Members of the research team were: Dr. Charles Katz Lieutenant Mike Wells (retired) Associate Professor Concord (California) Police Department Arizona State University Lieutenant Mike Kelly Dr. William King Chandler (Arizona) Police Department Associate Professor Sergeant Alex Robinson Sam Houston State University Wichita (Kansas) Police Department Dr. Eugene Paoline Lieutenant Randall Shields Associate Professor Hoover (Alabama) Police Department University of Central Florida Deputy Chief Suzanne Devlin Lieutenant John Fisher Fairfax County (Virginia) Police Department Nashua (New Hampshire) Police Department Commander Kent Shafer Michael Garrihy Columbus (Ohio) Police Department Assistant to the Chief, Lawrence (Massachusetts) Police Department Captain H. Craig Huneycutt (retired) Charlotte-Mecklenberg (North Carolina) Police Sergeant Bob Heimberger (retired) Department St. Louis (Missouri) Police Department vii IMPLEMENTING COMMUNITY POLICING: Lessons from 12 Agencies Upon contacting each agency, we requested that the chief executive (police chief, superintendent, commissioner, or sheriff) appoint a liaison from the department to coordinate our site visit. During the site visits, we stole much of their time, shared meals with them, requested piles of documentation, asked many diffi cult questions, and generally interfered with the normal course of their duties. All of our liaisons came through, and we thank them for taking the time to participate in our research. Our liaisons for the project were: Lieutenant Larry Reinlasoder Lieutenant David Rausch Billings (Montana) Police Department Knoxville (Tennessee) Police Department Deputy Chief Pat McElderry Martha DeMaio Colorado Springs (Colorado) Police Director of Research and Development Department Lowell (Massachusetts) Police Department Lieutenant Mike Wells (retired) Captain Robert Marshall Concord (California) Police Department Naperville (Illinois) Police Department Lieutenant Andy Lewis Captain Art Nolan Green Bay (Wisconsin) Police Department Newport News (Virginia) Police Department Lieutenant Myron Alderman Betty Woodward Greenville (South Carolina) Police Department Portland (Oregon) Police Department Majors Carl Hawkins and Eugene Stokes Sergeant Jerry Jones Hillsborough County (Florida) Sheriff’s Offi ce Reno (Nevada) Police Department Little can be accomplished during a site visit to a police or sheriff’s department without the support of the chief executive. These chief executives made our visits possible by permitting their agency staff to provide our research team with the information we requested. We thank the police chiefs, the sheriff, and superintendent who participated in this project, some of whom have since moved on to other pursuits, for allowing us unfettered access to their agencies. Chief Ron Tussing Chief Phil Keith Billings (Montana) Police Department Knoxville (Tennessee) Police Department Chief Luis Velez Superintendent Edward F. Davis III Colorado Springs (Colorado) Police Department Lowell (Massachusetts) Police Department Chief Ron Ace Chief David E. Dial Concord (California) Police Department Naperville (Illinois) Police Department Chief James Lewis Chief Dennis Mook Green Bay (Wisconsin) Police Department Newport News Police (Virginia) Department Chief W.L. Johnson Chief Mark A. Kroeker Greenville (South Carolina) Police Department Portland (Oregon) Police Department Sheriff Cal Henderson Chief Jerry Hoover Hillsborough County (Florida) Sheriffs’ Offi ce Reno (Nevada) Police Department viii Acknowledgments Professor Maguire was with the University of Nebraska when this project began and with George Mason University when it concluded. At the University of Nebraska, June Turner and Gerry Murphy provided administrative support, and Hank Robinson provided expert research assistance. At George Mason University, Annie Lonetti helped us navigate a variety of administrative waters. We also thank Cher Stuewe-Portnoff of cherWorks, Brittany Davenport of Crime and Justice Analysts, Inc., and Kenneth Washington, contractor to the COPS Offi ce, for editing and polishing the manuscript. Finally, we thank Rob Chapman, our grant advisor at the COPS Offi ce, for his patience and support. Rob contributed intellectual input at numerous stages of the project: providing feedback during the development of our site visit protocol, selecting research sites and thematic report topics, and reviewing multiple drafts of the manuscript. The popular image of academic life is one of solitary intellectual pursuit within the proverbial ivory tower. We hope that the teamwork and sharing that has made this project possible has helped to shatter that myth. Our deepest thanks to all who contributed. Edward Maguire and William Wells August 2009 ix About the Contributors ABOUT THE CONTRIBUTORS Suzanne Devlin serves as Deputy Chief of Investigations and Operations Support for the Fairfax County Police Department, Fairfax, Virginia. Her 32-year career spans participation at all ranks and command positions in the agency, including Patrol, Administration, Investigations, Training and Internal Affairs. She was Acting Chief in 2004 and served in that capacity until a new chief was named. She has a bachelor of arts degree in sociology and a master of science in conflict management, both from George Mason University. She also earned a certifi cate for public management from George Washington University. John Fisher is a supervisor in the Professional Standards Division of the Nashua Police Department. Lieutenant Fisher oversees hiring, internal affairs issues, and accreditation, and he supervises the Collision Reconstruction Team. He received the top student award from the Masters of Public Administration program at the University of New Hampshire in 2006. Lieutenant Fisher is a 13-year member of the board of directors for the Nashua Soup Kitchen and Shelters
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