In this issue

Foreword: Common Elements of Anti-gang Strategies ...... 5

Gangs and Youth Violence in the United States ...... 10

Identity ...... 12

Community Mobilization Initiative ...... 18

Gang Intervention Partnership ...... 23 Pe t ra Bar h

Gangs and Youth Violence in Central America ...... 29 Grupo Ceiba ...... 31 Daring To Care Paz y Justicia...... 36

Equipo Nahual ...... 42 Community-Based Responses to Youth Gang Conclusion ...... 47 Violence in Central America and Central American Immigrant Communities in the United States

Introduction: Communities Confront the Problem of Youth Gang Violence outh gang violence in Central America and in predominantly Central American immigrant communities in the United States is a serious problem. “Clikas” or Ysubgroups connected to well-known gangs such as the Mara Salvatrucha (MS- 13), or Barrio Dieciocho, (18th Street Gang), engage in violent competition between each other and in criminal activities including local drug dealing, extortion, assault and robbery. Gangs plague communities in places as disparate as the city of San Pedro Sula in Honduras and the San Fernando Valley of Los Angeles. Young people, especially boys and young men in poor or marginal communities with relatively few resources, are drawn into A WOLA Special Report these gangs and risk becoming both perpetrators and victims of the violence associated with them. October 2008 Youth gang violence is only one part of the or diminish the significance of the violent spectrum of violent and criminal behavior or criminal activity in which youth gangs that people in poor communities in the engage. But an informed understanding of Americas experience—a spectrum that runs the nature of youth gangs, what they are from intra-familial violence to the coercion and why they form, is necessary to formulate of organized crime syndicates and to the effective responses. Responding effectively rivalries of drug traffickers. Gangs are a to gang violence requires a comprehensive highly visible part of the spectrum and one approach that includes prevention programs that receives significant attention from the that help young people in difficult situations media. However, gangs bear only part of the meet their own needs, intervention Serious efforts to blame for the problems of crime and violence programs that offer alternatives for those in poor communities. Serious efforts to most attracted to gang life, rehabilitation strengthen citizen strengthen citizen security cannot focus their for those who wish to leave gangs and law security cannot focus attention on youth gangs to the exclusion of enforcement that deters crime and reduces their attention on other sources of violence and crime, which, violence. depending on the specific community, may youth gangs to the be responsible for as large a share, or larger, Researchers believe that the most exclusion of other of criminal activity. Nonetheless, gangs do effective responses to gang violence are present a significant challenge to public comprehensive, involving prevention, sources of violence security, and the problem should be treated intervention, rehabilitation, and law and crime. with the seriousness that it merits. enforcement, and that they are community- based, drawing on the work of local It is important to distinguish between organizations, churches, schools, and youth gangs and other forms of group-based community networks. This report focuses crime and violence. While definitions on examples in the United States and vary, most experts describe youth gangs as in Central America that illustrate this street or neighborhood-based groups, made approach. up of adolescents—primarily though not exclusively boys, ages 12-17—and young adults—primarily young males, ages into the Innovative Practices in early 20s—who come together in response to needs for identity and belonging. In these the United States and gangs, alcohol and drug abuse are common, Central America as is violent intra- and inter-gang activity. Gang members often support themselves The programs highlighted in this and contribute to the support of the group publication were selected because they through criminal activity, including robbery are community-based programs and apply and assault, extortion, and street-level drug innovative prevention, intervention, sales. Youth gangs can mutate into organized and rehabilitation programs in their criminal groups, and in some communities communities. This publication does not in the United States and Central America, attempt to offer an exhaustive survey of particular cliques of youth gangs in the every successful community-based program last few years have become more organized found in the United States and Central and more involved in systematic criminal America, but rather, to provide case studies activity.1 But the dominant model continues of specific programs that are enjoying to be one in which violence is expressive, success in their communities. Homeboy rather than instrumental, and criminal Industries in Los Angeles and the Center activity is a secondary rather than the for Formation and Orientation in San central activity of the gang. Salvador are two of many examples of prevention and rehabilitation programs not To be effective in addressing the problem of profiled here that have successfully reached youth gangs, it is essential to be clear about out to thousands of youth in dangerous this distinction. This is not meant to excuse areas to provide alternative educational

2 Daring To Care: Community-Based Responses to Youth Gang Violence and recreational opportunities, counseling services, and job training.2 Small, locally- run programs can have a significant impact in reducing gang violence in specific communities, and often grow into larger models while preserving their effectiveness.

While there is no easy formula for creating an effective program, and different approaches may be warranted in different contexts, there are certain lessons that emerge from the cases profiled in this report. Some of those lessons are:

1 The most successful gang prevention programs are those that are community- led and bring together diverse actors such as schools, local government, healthcare centers, religious institutions and police.

2 Effective programs are usually designed by local or municipal government agencies and by community actors; national government agencies ought to provide technical assistance, guidance, and funding for local initiatives. WOL A

3 Communities vary, and gang violence Salvadoran youth breakdancing at prevention programs must be tailored 5 Effective organizations often involve a local youth violence prevention organization, the Centro de to the conditions found in specific youth who have participated in Formación y Orientación, San communities. The root causes of gang their programs or who are active in Salvador. membership and their impact on a the community as outreach workers community differ and require varied and program staff. This peer-to-peer approaches. Each program profiled in model strengthens the ability of the this publication began by analyzing programs to reach out to and involve the situation in its community and neighborhood youth. developed specific local responses based on that analysis. 6 Effective programs develop strong relationships with a broad range 4 Effective programs, such as those profiled of community organizations and here, recognize young people’s need institutions, which can reinforce and for identity and belonging. They reach support the programs’ work with young out to youth, and they offer activities, people. Developing relations with workshops, and discussions that serve other community institutions can as alternatives to gang life. They are be difficult. Because there is often a built on the belief that young people stigma attached to working with at-risk can become productive members of or gang-involved youth, prevention society with support and encouragement and intervention programs frequently from program staff, from families and encounter prejudice and hostility in from communities, and that young their work. But facing this challenge, people have tremendous energy that and building strong community needs positive outlets to be channeled relationships, has a positive effect on constructively rather than destructively. young people in these programs.

Washington Office on Latin America October 2008 3 7 Effective organizations develop building trust can be a lengthy process, constructive relations with local but doing so contributes significantly police. This is an especially difficult to the success of prevention and challenge. Community activists intervention efforts. and young people tend to be deeply suspicious of the police, and police Many of these programs demonstrate that often see community programs that successful community programs addressing work with young people as protecting problems related to gangs can be created criminals. Most of the programs and implemented with limited resources cited here have developed working and government support. That said, relationships with the police, despite concerted and continued local and national high levels of skepticism both on government support for these kinds of the part of police and civil society. programs is essential for their continued Overcoming these hesitations and growth and success.

Endnotes 1 Washington Office on Latin American and Instituto Tecnológico Autónomo de México,Transnational Youth Gangs in Central America, Mexico and the US: executive summary, March 2007. 2 An evaluation of such programs in Latin America has been done by the Pan American Health Organization: PAHO, Proyecto Fomento del Desarrollo Juvenil y Prevención de la Violencia, Documento de Evidencias Sobre el Estado del Arte de la Prevención de la Violencia en Adolescentes y Jóvenes Usando los Medios de Comunicación—Radio, Televisión, Impresos—y las Nuevas Tecnologías de la Comunicación, 2006. http://www.paho.org/CDMEDIA/FCHGTZ/ INFORMACION%20REGIONAL/DOCUMENTOS/comunicacion.pdf. In the United States, work by specialists, Cheryl Maxson (University of California at Irvine) and Malcolm Klein (University of Southern California) have highlighted programs and policies that are effective in dealing with the root causes of youth gang violence, and their impact on a community.

4 Daring To Care: Community-Based Responses to Youth Gang Violence Common Elements to Successful Anti-gang Strategies and Programs by Caterina Gowis Roman

Caterina Gouvis Roman is a senior research on anti-gang efforts are two central (and associate studying youth gang issues at the related) principles in what works. In Urban Institute, a non-profit research center the United States, gang problems often in Washington DC. She has evaluated appear intractable—and these problems community-based anti-gang initiatives are magnified in Central America. But Both scholars and and comprehensive crime prevention and community mobilization against gangs, intervention programs in the United States in concert with the strengthening of community-based for many years. She participated in a 2006 the community’s capacity to carry out practitioners working conference in El Salvador on youth gang programs, has laid the groundwork for with youth in gangs violence in Central America and visited several successful anti-gang efforts in the United community-based youth violence prevention States. I believe these same principles and those at risk of and intervention programs there. can work in Central America and other joining gangs recognize regions, even those experiencing economic n the introduction to this brief, WOLA and family instability, or with limited that one cannot simply identifies some of the common themes resources to launch coordinated and translate successful Iunderlying the variety of anti-gang comprehensive anti-gang efforts. Below, I models utilized in the programs highlighted in this report. I discuss these principles in more detail and am pleased to see that they are similar how they are relevant for gang intervention United States to to the successes and challenges I have and prevention programs. areas outside of the US. witnessed over the years while studying gang problems and associated interventions To lay the groundwork for this discussion, in the United States. In particular, I want it is important to emphasize that I am not to draw attention to the importance of advocating replication of specific US efforts two promising strategies or principles or programs, but instead, an awareness and mentioned in the profiles of the various understanding of the principles embedded programs. These are community-driven within effective community efforts against programming (the establishment of gangs. Both scholars and community-based programs that respond to the self-identified practitioners working with youth in gangs needs of a particular community) and and those at risk of joining gangs recognize community capacity building (that is, that one cannot simply translate successful efforts to strengthen a community’s own models utilized in the United States to ability to develop and support programs areas outside of the US. Even within the that work with its youth). I believe these United States, projects that were developed two principles are at the foundation of and effectively implemented in one setting solid anti-gang programming, whether cannot simply be transferred to another. the program is focused on prevention, For instance, the program so successful in intervention, or is comprehensive cutting gang shootings and youth homicides programming that includes a variety of in Boston in the mid 1990s did not transfer strategies and target populations. effectively when researchers attempted to replicate it in Los Angeles or Washington, In other words, I believe that community- DC. The successful anti-gang strategy driven programming (sometimes called implemented in the Chicago neighborhood community mobilization because a of Little Village between 1992 and 1997, community becomes mobilized to was tested (and heavily funded) in five identify and address its problems) emerging gang communities nationwide, and the development of community and appears to have worked in only two of capacity to carry out programs focused those five sites (and in those two sites, the

Washington Office on Latin America October 2008 5 strategy was less effective than it had been in involved not just in identifying the Little Village). problem, but in designing responses. Community mobilization around gangs In fact, the successes and failures of anti- can have a range of possible objectives— gang programs and strategies provide such as building community awareness important slices of information that, when of the problem, developing grassroots put together, generate essential lessons strategies to prevent at-risk youth from for cities big and small, and suburban and joining gangs, or providing known gang rural communities seeking advice or best members with jobs or the skills necessary practices with regard to preventing youth to obtain legitimate jobs. My research has In all the research I have from joining gangs or combating gangs found that strategies that arise internally already wreaking havoc on communities. from the community level are often more conducted on anti-gang In all the research I have conducted on likely to foment trust between partners in programming and other anti-gang programming and other research a community, gather appropriate resources, on successful elements of crime prevention and in turn, succeed in accomplishing research on successful partnerships, community mobilization objectives, than are anti-crime and gang elements of crime and focused capacity building appear to be initiatives that arise through external or prevention partnerships, present in successes and absent in failures. extra-local pressure or incentives. This is These principles—clearly present within evident in the Gang Intervention Program community mobilization the programs discussed in this brief—can (GIP) in the District of Columbia and and focused capacity provide the foundation for success in any in Paz y Justicia in Honduras. The building appear to be area dealing with gangs. unrelenting involvement and dedication of local community leaders, combined present in successes and with careful outreach to gang and at-risk absent in failures. These Community Mobilization gang youth in these sites, have built trust and eased long-standing tensions between principles—clearly Researchers and practitioners alike surely the police, youth and residents. present within the have heard gang experts advise over the years that anti-gang strategies must take programs discussed in into account the community context and this brief—can provide be tailored to address the underlying root Community Capacity the foundation for causes of gang violence in the targeted Building communities as well as the particular success in any area nature of gang crime. In response, Community capacity building is connected dealing with gangs. communities interested in combating to, and in fact, inherent in successful gang violence usually attempt to cobble community mobilization. A community’s together information on the level and capacity is its ability to organize itself types of violence being committed and to take collective action toward defined the demographic characteristics of the community goals—in this case—toward youth and young adults participating in a coordinated anti-gang strategy or gangs and gang-related crimes. Yes, these program. Community goals, by definition, “data gathering” steps are important, but are more than a collection of individual community mobilization is more than an self-interested goals, and collective action understanding of community context. entails individuals acting together with a common concern for a particular problem. Community mobilization for gang Mobilization will not succeed without prevention is a dynamic process that buy-in and a focused commitment from involves the community as an active agent community members to fight the gang in anti-gang efforts. Interested community problem in a concerted manner. members and groups can include residents, parents and young people, churches, A common myth is that communities schools, local businesses, social groups, and either have capacity or they don’t, others. The key is having the community and those that don’t will have trouble

6 Daring To Care: Community-Based Responses to Youth Gang Violence developing it. But capacity can be Community Involvement developed—through the cultivation of the informal community (e.g., neighbors The importance of broadening the variety and residents) and connections to formal of actors involved and committed to organizations and institutions both inside addressing gangs in a community cannot and outside the community. Community be overstated; the broader the constituency members and groups not on board can fighting the gang problem, the more be educated about the issues related to likely any programmatic efforts can be gangs and the consequences of remaining implemented on a broad scale—or at inactive, which will help galvanize least on a scale large enough to make an impact. Having a range of stakeholders— commitment. In turn, this will lead to The unrelenting increased ability to mobilize financial, community leaders, social service and human, and technological resources faith-based agencies, businesses, schools, involvement and for gang prevention, intervention and youths, even local and federal government dedication of local suppression efforts. Thus, the community’s leaders—brings the varied expertise needed community leaders, capacity to mobilize itself to fight gang to tackle the tough multi-dimensional violence can be developed over time. problems associated with gangs. combined with careful outreach to gang and I would caution, however, that large Strong Leadership anti-gang partnerships or coalitions at-risk gang youth in often are fraught with problems such as these sites, have built Not surprisingly, community leaders turf battles, lack of accountability for trust and eased long- play a key role in successful community inaction, and unwillingness to share mobilization and capacity building. Strong information. To overcome these issues, standing tensions leaders can articulate the community’s voice all community stakeholders must be between the police, through identification and development of dedicated to a common mission and core values and a unifying purpose. Strong committed to achieving the same goals. youth and residents. leaders can generate consensus by leading Anti-gang strategies or programs with the community through the process of clear mission statements (and strong deliberation around community priorities leaders) will be better able to determine and providing the public with information which partner agencies and organizations about the local gang problem and the far- should be involved, including which reaching consequences of gang violence, as public government agencies are needed mentioned above. As a result, new on- to expand community capacity to achieve the-ground interest and information are intended goals. generated about gangs as a social problem and the capabilities of government and the community to solve them. This is a method Moving Forward by of getting all community stakeholders Looking Back interested, but more importantly, ready to tackle the problem of gangs. Stakeholder The concepts of community mobilization buy-in means partners are willing to provide and capacity building are not new. They needed skills or resources and to be held are embedded within anti-gang programs accountable if there is no follow through. and strategies implemented throughout the Community leaders can also set the tone United States. For instance, community for anti-gang strategies, for instance, by mobilization is an explicit strategy of advocating for respect for youth’s rights, the model known as the comprehensive, opposing unduly repressive measures or community-wide gang program model punishments, and advocating for just and (the “comprehensive” model). The model, balanced procedures. Strong leaders can developed in the late 1980s by University help assure diversity so that any coordinated of Chicago sociologist Irving Spergel, was coalition or partnership represents all first implemented in the Little Village members of a community. neighborhood in Chicago. As early

Washington Office on Latin America October 2008 7 successes came to light, the US Department This illustrates my point that programs that of Justice’s Office of Juvenile Justice and arise internally and slowly develop focused Delinquency Prevention (OJJDP) used capacity to fight gangs will have fewer the model as a prototype in its sponsorship hurdles achieving long-term goals compared of gang programs in five sites across the to programs that come from outside the country between 1995 and 2000.1 community. The work of Identity in Montgomery County, Maryland provides a In addition to community mobilization, sound example. Identity’s executive director the comprehensive model also involves and co-founder, Candace Kattar, has been a Having a range of capacity building, at the level of the persistent force in developing and sustaining community, and among and across the capacity for prevention and intervention stakeholders— participating organizations. Giving programs in Latino neighborhoods, and community leaders, residents a voice in the development her capacity-building work predates the and the maintenance of the gang founding of Identity. social service and intervention strategy is heavily promoted, faith-based agencies, as is the development of coordinated As this brief points out, grassroots efforts businesses, schools, goals and activities across a broad range that want to be effective on a larger scale of stakeholders. The intent was for the must build the capacity to communicate youths, even local and initiatives to be jointly sustained through with government agencies. The capacity federal government inter-organizational capacity building to obtain extra-local resources from public leaders—brings the across all levels of the criminal and juvenile agencies such as the police or the court justice systems, schools, community system ultimately will affect a community’s varied expertise needed organizations, and other government overall stability and social control with to tackle the tough agencies (Spergel, Wa and Sosa, 2006). regard to crime and violence. In other words, it is okay to keep programs small if multi-dimensional As stated earlier, evaluation of the five the goals are devoted only to one youth problems associated sites found some successes in two of the at a time, but programs that aspire to with gangs. five jurisdictions—Mesa, Arizona and greater successes, such as reductions in Riverside, California. In examining community levels of violence, should the programs that did not succeed, the aim to achieve their goals both through evaluators noted the programs did not internal capacity building and external develop the community capacity to offer a capacity building. wide range of program activities that could foster positive youth development (Spergel Second, programs that make their efforts et. al. 2004). Furthermore, grassroots visible to the public and that reward involvement—a strong component small and large successes will provide in Little Village—was not an element the community with the knowledge that relied upon in the five replicated sites. efforts can be effective, that the strategy Community mobilization was highest (but is devoted to increasing the quality of life not high) in the two sites that witnessed for residents, and hence, that it is worth the most success. the risk to invest time and effort. It is true that success—even small successes such as A major limitation in the federally-funded turning one gang member’s life around— comprehensive models in the five sites will breed more success. was that these programs were externally directed and funded. They tended to be Third, local and national governments large cross-agency endeavors with multiple should reward strong community-based strategies and goals embedded in the model. and grassroots anti-gang efforts through This is a difficult mandate with which to both formal and informal support. Support begin. The cities had a model imposed does not necessarily mean designating on them from the outside without careful financial resources, but it could include on-the-ground cultivation of grassroots training, information sharing, leadership, networks or community mobilization. or simply the provision of a dedicated

8 Daring To Care: Community-Based Responses to Youth Gang Violence space for programming or meetings. In the end, strong local leadership, Indeed, government resources can go community mobilization and building a long way to increase a community’s community capacity over time are the capacity to expressly target the youths tools that lead to successful gang violence most in need of supports. reduction efforts. These are the same tools that bring positive, sustainable returns to Finally, jurisdictions that believe they have communities even after some stakeholders few resources to tackle gangs should not be lose interest. Local and national discouraged. Every jurisdiction has inherent government support will buoy community- internal resources—human capital—that based anti-gang efforts, and dedicated can be cultivated. These human resources government funding provides the solid are real assets that can be mobilized to footing for innovative ideas to blossom. But develop the social capital that provides the the initiative has to come from community baseline for effective anti-gang strategies. leaders and groups themselves. Finding one person or one leverage point may be all that is needed. The views expressed in this essay are those of the author and should not be attributed to the Urban Institute, its trustees, or its funders.

Endnotes 1 Other currently-operating federally-sponsored programs rooted in the comprehensive model include the Gang Free Schools and Communities program and the Gang Reduction Program (GRP).

Washington Office on Latin America October 2008 9 Gangs and Youth Violence in the United States

n the United States, youth violence found that in 2006, 20.6% of the District and criminality associated with gangs of Columbia’s foreign-born population Ibased in Central American immigrant was from El Salvador. This makes the communities have received growing Salvadoran community in Washington, attention from the news media and DC one of the largest communities of politicians. As noted elsewhere in this Salvadoran nationals living abroad, report, gangs such as the Mara Salvatrucha second only to that of Los Angeles. (or MS-13) and the 18th Street Gang Research suggests that emerged in Central American immigrant Central American migrants face communities, particularly in Los Angeles, numerous obstacles to their integration most youth involved in the mid-1980s. They had a national into US society. Language barriers, in so-called Central and ethnic character, being made up along with limited access to health care, mostly of Central American immigrants education and employment contribute American gangs are not or the US-born children of Central to their marginalization. Anti-immigrant involved in organized American immigrants. They were distinct sentiment is strong in the Washington crime, drug trafficking, from other gangs based in Mexican- area as it is throughout the country, American, Puerto Rican or other Latino evidenced by campaigns against day- or even in street-level communities. As the Central American laborer centers and public support for drug sales. immigrant community has grown in the the use of local police to enforce federal United States and spread from major immigration laws. This undercurrent urban centers including Los Angeles, of hostility can further marginalize Houston, metropolitan Washington and Central American youth and increase metropolitan New York, to other cities, the likelihood that they will seek youth gangs like MS-13 and 18th Street have gangs as a source of identity, safety and moved with them. Today, according support, both financial and social. This is to the National Alliance of Gang not to say that all, or even most, children Investigators Association (NAGIA), of immigrants are gang members, but such there are an estimated 38,000-40,000 youths are at increased risk of becoming members of MS-13 and 18th Street in the involved or coming into contact with United States. gangs in their neighborhoods and schools.

The case studies of youth violence By some accounts, MS-13 is the most prevention programs that follow focus on organized and most violent of the Latino the Washington, DC area, where WOLA gangs in the Washington metropolitan has conducted research in the past on area. At the same time, authorities the emergence and nature of Central generally view MS-13 and other Central American youth gangs. American immigrant gangs as relatively minor public safety issues in their The Washington metropolitan area has jurisdictions. Research suggests that seen a rapid influx of Latino migrants, most youth involved in so-called Central both from Latin America and from other American gangs are not involved in parts of the United States. According organized crime, drug trafficking, or even to a 2008 report from the Pew Hispanic in street-level drug sales, but rather spend Center, of the top 25 counties with most of their time “hanging out” in the the largest Hispanic population growth street engaged in non-criminal activity.1 from 2000-2007, 4 are in the greater Washington, DC metropolitan area. In Because the majority of gang members addition, the Migration Policy Institute or youth at risk of joining a gang are not

10 Daring To Care: Community-Based Responses to Youth Gang Violence involved in serious criminal activity, section have been successful because they it is important to reach out to these offer a collaborative, coordinated response individuals with positive alternatives that to the problem of youth gangs, and most respond to the needs that often drive them importantly, provide Latino youth with to gangs. The three Washington-area opportunities and support that encourage prevention programs described in the next a healthy gang-free lifestyle.

Endnotes 1 Washington Office on Latin American and the Instituto Tecnológico Autónomo de México,Transnational Youth Gangs in Central America, Mexico and the US, March 2007. http://www.wola.org/media/Gangs/washington_dc_gang_research.pdf.

Washington Office on Latin America October 2008 11 Identity’s experience demonstrates that a successful gang prevention program can emerge from the efforts of a small community organization. Having started as a modest HIV outreach program, Identity has developed into an effective youth development organization with a strong gang prevention component that has maintained its roots in Montgomery County, Maryland. Identity’s ongoing responsiveness to the needs of at-risk youth in the community, and the organization’s ability to establish trust with service providers, law enforcement and school officials, have allowed it to ensure that local youth are offered the support they need to lead lives free of crime and violence.

IDENTITY Montgomery County, Maryland

dentity, a Latino youth development development in the promotion of a strong organization in Montgomery County, in and healthy Latino community. Ithe Maryland suburbs of Washington, DC, was founded in 1998 by community There are twenty-nine full or part-time Youth often describe members Candace Kattar and Diego employees at Identity, many of them youth feeling scared and Uriburu to respond to the needs of the who have participated in the programs area’s burgeoning Latino population. Its unsafe walking around themselves and have gone on to hold first program focused solely on HIV, offering leadership positions in the organization. the community due to instruction on prevention, counseling, and The annual operating budget is $3 racially motivated threats testing services to Latino youth. Soon, it million, which is provided by the federal became clear that the needs of the Latino government, Montgomery County, the city and choose to join a community were far more extensive of Gaithersburg, various foundations and gang for protection. and that reaching out with a more small individual donations. Identity has no comprehensive range of services would be religious affiliation. more effective.

Identity’s founders assessed the broader Community Context needs of the Latino population and worked to connect the community with Identity has found that Latino youth who various existing public services such as are active in its programs and services health, education and legal services. As are challenged by a number of common more people began to see Identity as a experiences. One of the biggest is family valuable and trustworthy resource in the separation, most often seen in youth whose community, Identity staff developed after- parents, guardians or elder siblings migrated school programs, fitness and recreation to the United States without them and activities, parent education and support, who were reunited years later. In these case management and referral services—all situations, youth may have joined a gang in of which target Latino youth and their their home country in response to the lack families in Montgomery County. As youth of family or they may join a gang once they gang violence worsened in the Latino arrive in the United States due to feelings community, the issue became a higher of estrangement or if their family life fails priority. to meet their expectations or does not provide support. The overall mission of Identity is to empower Latino youth to reach their Racial tensions, low levels of education full potential through youth and family- and isolation are other common issues based initiatives that are culturally and facing youth. In Montgomery County, as linguistically sensitive to the needs of elsewhere, there can be significant friction the Latino community. Identity works between young people in the Latino and to provide services that focus on youth the African-American communities. Youth

12 Daring To Care: Community-Based Responses to Youth Gang Violence often describe feeling scared and unsafe programs, etc.—that can provide help walking around the community due to with particular issues. In addition to these racially motivated threats and choose to prevention-based programs, Identity also join a gang for protection. Educational runs a rehabilitation and reintegration success can also be elusive as schools tend program for adolescents in a local to channel their resources towards students correctional facility. they perceive as having the potential to achieve. Those students who arrive with After School Program poor academic backgrounds or are failing at school have a tendency to slip through The After-School Program is offered the cracks and often drop out. Feelings to Latino students at 10 of the county’s of isolation due to language barriers and public middle schools and high schools. cultural misunderstanding, not only in The program consists of 30 interactive school but in the greater community, can sessions where facilitators talk with put youth at great risk of joining a gang. students about leadership and community building, self-identity, communication skills building and conflict resolution, In order to address these problems, Attention to detail is Identity’s programs seek to create a substance abuse, HIV/AIDS, sexuality and community in which youth feel they can relationships, and goal setting. High school imperative during the be successful while engaging in positive youth are trained as peer educators and intake as youth will activities. In this setting youth are able conduct individual and group outreach often come to Identity to embrace their Latino heritage and and education activities with other youth demonstrate that they are valuable, in their schools and communities. focused on one problem contributing members of society. without realizing the The program is offered during both the fall and spring terms of the school year. many other factors Identity Programs Two facilitators, female and male, meet affecting them. with 20-25 youth twice a week for two Identity offers a series of prevention hours at a time. All programs are offered programs through the schools and through in English and Spanish as a means of retreats and activities that it organizes allowing Latino youth to reconnect with itself. It also coordinates a youth center, the their cultural identities. Participants are Crossroads Youth Opportunity Center, for often referred by teachers or counselors Montgomery and Prince George’s counties. and permission for the youth to participate To participate in a program or receive is always requested from the parents. services from the center, interested young Recently, Identity began working in its people must meet individually with a staff first elementary school, providing after- member, for an “intake” appointment. school activities as well as tutoring for The intake is a thorough process in which Latino students. the staff member assesses the major issues the youth is facing that will need to be addressed. Attention to detail is imperative Retreats during the intake as youth will often come Organized at the end of the after-school to Identity focused on one problem without programs, retreats take place for three realizing the many other factors affecting days at a retreat center, usually a them. conference center or meeting place out of the city, and focus on team building Other Identity programs include an and leadership development. School after-school program, parent education personnel are invited to participate in the and support, fitness and recreation retreats as well as Identity board members. activities, and programs to help refer Retreat activities range from physical young people and their families to other team-building exercises to introspective agencies—health care centers, training sessions where participants are able to

Washington Office on Latin America October 2008 13 Justice and Delinquency Prevention, at the Department of Justice, and from local government agencies in the two counties (in Montgomery County, the Department of Health and Human Services, and in Prince George’s County, the Office of Youth Strategies.) Members of the Maryland congressional delegation also helped in the effort to gain both federal and local funding. I d en tit y A group of young people spend an afternoon fishing The Crossroads initiative brings together during an Identity retreat. a wide variety of actors in the community, share more personal details of their lives. including schools, law enforcement, the The retreats can often be emotional state attorney’s office, public defenders’ experiences, and it is important for offices, and county libraries and health The Crossroads initiative the youth to have a safe, supportive departments, to respond to the needs of youth and families in the area. brings together a wide environment where they feel they can express themselves openly. Intended to serve all youth and families, variety of actors in the not just Latinos, the Crossroads Youth community,including Parent Training and Support Opportunity Center is located on the schools, law enforcement, Workshops are provided for parents of boundary between the two counties, in the state attorney’s office, youth enrolled in the after-school program. an area where gang violence is a serious These sessions are available two to four problem. Outreach counselors, most public defenders’ offices, times per semester and focus on parenting of them former gang members, spread and county libraries and skills, including supervision, discipline information about services offered by the center and other community centers in health departments, and communication. Communication skills training includes joint sessions with the area. Crossroads coordinates outreach to respond to the needs parents and children. Some sessions are to youth and offers a range of one-on-one of youth and families in also dedicated to helping parents better support such as mental health services, understand the importance of their assistance in getting services from other the area. involvement in their children’s school agencies, and legal assistance for youth life to help them achieve more academic and their families who are at very high risk success. for joining a gang or currently involved with one. The center also coordinates supervised recreational activities for youth Crossroads Youth such as soccer, hiking, camping and Opportunity Center white-water rafting. In 2004, Identity took on a new responsibility—it became the Youth mostly come into contact with coordination agency for the Crossroads Crossroads through referrals by probation Youth Opportunity Center, a new officers, police officers, school officials, youth outreach project sponsored by Health and Human Services street outreach Montgomery and Prince George’s County workers and other community centers. governments. The project was created During the intake process for a youth, to help existing social services and Crossroads tries to have the parents community youth programs reach out to present as well, if they are available. gang-involved youth and youth at risk of Identity attributes the volume and gang involvement while building stronger success of referrals to the reputation families and better communities. Initial that Crossroads has developed in the funding for Crossroads came from the community as a trustworthy and effective federal government’s Office of Juvenile organization.

14 Daring To Care: Community-Based Responses to Youth Gang Violence Manuel was two years old when his parents left him behind with relatives in El Salvador and migrated to the United States in search of better-paying jobs that might support the family. Eleven years later, Manuel himself migrated illegally to Los Angeles in hopes of reconnecting with his parents. When he arrived, he found that his parents had divorced, his mother had remarried and that he faced life in a strange city with a culture and lifestyle completely foreign to him. In El Salvador, he had suffered serious physical abuse at the hands of relatives; in the United States, his new stepfather regularly beat his mother. His mother and stepfather had two young children of their own, and between them and his mother’s two jobs, she had little time for the adolescent Manuel. He soon joined a gang. It gave him protection and a sense of family and belonging that he had never known.

After a few years in Los Angeles, Manuel moved to Maryland and continued his gang involvement while attending high school. An English for Speakers of Other Languages (ESOL) counselor took notice of him one day and put him in touch with Identity. During the 60 hours of after-school program work, he was disruptive and Identity staff believed he was trying to get himself expelled from the Identity program. He had only ever known failure and did not know what it was like to have someone demand better and refuse to give up on him.

Despite the odds, Identity staff did not give up on Manuel. They worked with him, offering him repeated opportunities. Eventually, Manuel left the gang that had been his life because his involvement with Identity programs filled the void he had felt for so long. He began to believe in himself as a person with potential in a context outside of the gang. Over time, Manuel grew increasingly active in Identity’s programs, and he began reaching out to other youth in the community, speaking to them about his experiences, sharing the realities of gang life so they would not make the same mistakes and getting them involved in Identity.

This was not an easy transition for Manuel. In fact, he was threatened by his former fellow gang members and had to relocate for his own safety. Identity staff and others in the community who knew Manuel from his outreach work helped him resettle and work out his legal residency status, and connected him to the support services he needed. He now has a work visa and a regular job in a new location and is in the first steps of living a more regular life, free of the grip of his past mistakes.

The Re-entry and An Identity staff member visits the facility Support Program twice a week to work with Latino youth Apart from the Crossroads initiative, inmates. When a new inmate arrives, the and the prevention-oriented programs, Identity staffer first explains the procedures Identity also participates in a re-entry of the facility and translates the orientation and support program. This rehabilitation manual containing the procedures for and reintegration service is located at inmates who do not speak English. Later, the Clarksburg Correctional Facility in the staffer serves as a liaison between the Montgomery County. The detention center youth and his or her family and as a support is primarily for adults, but youth who have person in the inmate employment center, been convicted of serious crimes are housed which can be difficult for Spanish-speaking there as well. Most of those crimes are youth to use. Finally, when an inmate gang-related. is about to be discharged, Identity and

Washington Office on Latin America October 2008 15 representatives from the public defenders of the local Latino community that may office, the housing authority, various social not have been previously known. This is services, and probation officers meet as part beneficial to youth, their family, the police of the Facility’s reentry program to ensure and the community. that adequate services will be in place upon the youth’s release. These meetings are essential to ensuring that the participating Safety agencies are prepared and committed to assisting the youth in the process of re- Identity has never had a security problem Through this dialogue entry. It is important for youth to develop related to its work with gang-involved relationships of trust with service providers youth. Staff say that they do not tolerate with Identity, many whose support they will need as they gang identity symbols (clothing, colors, police officers have reintegrate into society. etc.) that might create tensions between youth or with employees. Youth must sign come to see youth in off on very clear rules before participating a different light and Collaborative Strategies in the programs. These rules stipulate understand aspects that participants will not reveal any gang Identity has numerous important identity through dress, hand signals, of the local Latino partners who come from a variety of paraphernalia or other means, nor will they community that may sectors of the community including the engage in any form of gang recruitment at health departments of Prince George’s the center. Based on a desire to have a safe not have beenpreviously and Montgomery counties, the public place to hang out, youth respect the rules known. This is beneficial defenders offices, the Montgomery County at Identity, and there have been no reports to youth, their family, Correctional Facility and the officers of the of youth or staff on the premises feeling county police department gang unit. threatened. the police and the community. Building a strong collaborative relationship with the police has helped Identity’s work Impact and Limitations with Latino youth in the community. While Identity staff have sometimes not Identity has served more than 325 youth seen eye-to-eye with the practices of at the Youth Opportunity Center since its police gang intelligence units, they also inauguration. As of September 2008 there believe that some of their greatest allies were 91 active cases, or current clients, are those police officers who are willing to in the organization’s system. Identity listen and share information. Establishing measures its success based on base-line and a relationship with the gang unit of the exit surveys which assess factors including police department and gaining their trust self-esteem, identity, knowledge, support, took time but has allowed Identity to conflict resolution, and association with collaborate with the police department gang members. A professional evaluator when safety issues arise. Often youth from George Washington University was confide in Identity staff when a criminal or originally hired to provide data analysis violent act is being organized, and police and Identity now has a full-time evaluator can thus be warned in time to patrol the on staff. area. Having credibility with the police ensures that Identity can count on them in Needs assessments are carried out as often return. Police officers regularly visit Identity as possible to help guide all of Identity’s with concerns and observations about programming so that it responds to the what they are seeing or hearing in the ever-changing needs of youth. In 2006 community, a practice which keeps Identity Identity conducted its biggest needs up to date with the pulse of the community. assessment to date, involving over 1,000 Through this dialogue with Identity, many Latino youth. The needs assessments also police officers have come to see youth in serve as a mechanism for other agencies to a different light and understand aspects identify needs in the community to which

16 Daring To Care: Community-Based Responses to Youth Gang Violence they should respond. Data collection is developing their own outreach and youth extremely important to their work. The development organizations. results of all evaluations are shared with staff members, donors, the advisory board and the community. Conclusion As a short term goal, Identity hopes to Identity has grown from a small community improve its curriculum, train staff more group to a major organization running thoroughly with a focus on management youth violence prevention programs. With training, and finally to increase individual increased coordination among private and donations from the local community public community groups and additional and involve them in Latino youth funding, the organization will be able to development efforts. In the long term, continue increasing its impact on youth. Identity hopes to improve upon its There is still a great deal of work which capacity as a research-based agency and must be accomplished in order to raise become an organizational model that awareness about the growing Latino could be replicated. With the dramatic population in the United States. Equipped growth rates of the Latino population, new with a greater level of understanding concentrations of Latinos are appearing in of the needs of the Latino community, different areas all the time. With greater groups could begin to define best practices resources, Identity staff would hope to and create model programs that could expand its advocacy efforts to reach be replicated, something which Identity more people who need help creating and aspires to be.

Washington Office on Latin America October 2008 17 The Community Mobilization Initiative is a prime example of the role that governments can and should play in working with civil society to create collaborative prevention programs that work with young people and effectively curb crime and violence. Federal government funding and the involvement of both local and federal government officials in developing and supporting the program have been essential to the Community Mobilization Initiative’s success. In this case, government officials believed that prevention was an important component in effective anti-gang programs, provided the funding necessary to get a program off the ground, and succeeded in encouraging police and civil society actors to work together toward a common goal.

COMMUNITY MOBILIZATION INITIATIVE (CMI) Herndon, Virginia

n recent years, gang-related violence World Vision founded CMI with a two-year has plagued the town of Herndon, grant of $500,000 provided by the Office of IVirginia, in the western suburbs of Juvenile Justice & Delinquency Prevention Washington, DC. Noting this increase in (OJJDP) of the U.S. Department of Justice. CMI is formally gang-related violence, community leaders Although Christian-based, World Vision is and law enforcement officials felt the not affiliated with a specific denomination considered a “gang problem could not be addressed by the and abstains from religious activity in the reduction” program, that police alone and that a comprehensive program because it receives public funding. is, a program designed approach was needed. In 2005, OJJDP has extensive experience with youth Representative Frank Wolf (R-VA), violence prevention programs around to reduce the number who represents Herndon and the 10th the country and believes that successful of young people joining congressional district, successfully lobbied programs depend on coordination between for federal funding to support local and gangs. But the staff community groups, schools and the police. regional initiatives aimed at confronting Thus OJJDP provided funding on the prefers to think of it as the area’s burgeoning gang problem. condition that CMI coordinate its work a “program for youth at with other community service organizations The Community Mobilization Initiative in Herndon and the local schools and risk who have a lot of (CMI), a project of the group World police. To ensure communication and unused assets,” as one Vision, was founded in Herndon in 2006. coordination right from the start, the CMI official said. Due in part to an already established Herndon Chief of Police and World Vision relationship between Wolf and World worked collaboratively to recruit and hire Vision, when local officials agreed on the first CMI director, Henry R. Pacheco, the need for a coordinated, collaborative who had been counseling and mentoring response to the gang problem, the gang-involved youth for about 18 years. congressman enlisted World Vision’s Pacheco was then free to hire his own help in designing the intervention and staff. He named a longtime youth and prevention component. community organizer, Juan Pacheco, who is no relation, as his community liaison. World Vision, founded in the United States in 1953, is an international, CMI is formally considered a “gang Christian-based relief and development reduction” program, that is, a program organization. World Vision’s stated goal designed to reduce the number of young is “the well being of all people, especially people joining gangs. But the staff prefers children.” In the United States, World to think of it as a “program for youth at Vision operates 11 sites, in both urban and risk who have a lot of unused assets,” as rural settings. The focus of these programs one CMI official said. Their overarching is generally poverty alleviation. CMI is goal is to help enable youth to make the first gang-related initiative launched smart life decisions and to survive the bad by World Vision. decisions.

18 Daring To Care: Community-Based Responses to Youth Gang Violence Community Context outreach activities, including on streets in neighborhoods where gangs are known Before it launched any work with young to have a presence. people, CMI’s staff consulted with a diverse group of community coalitions and stakeholders on developing its programs. Programs CMI reached out to and established relationships with a variety of community Based on consultations with community groups, coalitions and schools, gathering groups, local officials and police, CMI information on existing programs and developed a program that now includes learning from the experiences of others. intervention services to help address CMI felt it was important to build positive youth problems and concerns, provides relationships with both public and alternatives to gangs, and offers adult community partners from the beginning. mentors to young people. CMI offers these services through a culturally sensitive This process also helped CMI identify staff that assists youth in making more the larger needs of youth in the positive life decisions. A distinguishing community in order to connect them characteristic of CMI’s work is an emphasis with existing services and foster positive on the importance of family. Through To make their message dynamics with community actors in the its programs and work with youth, CMI future. Participation from the Herndon outreach workers attempt to incorporate more credible with community and relevant organizations has family members into the process and students, staff dress in operate under a holistic view of each been vital to the success of CMI’s work. typical “street clothes” individual youth’s situation. CMI, in its consultations, identified a and share personal number of factors prevalent in the Herndon Youth Outreach and Youth Education accounts of their area that put young people at risk of CMI’s initial outreach was done through experience confronting becoming involved with a gang. These the local school system. CMI approached common problems include: experiencing local administrators for permission to gangs or involvement abuse and violence, alcoholism, drug abuse, give presentations on school campuses. with a gang. mental health issues, truancy, feelings of Staff members (some themselves former disaffection, low sense of attachment to gang members) give regular presentations the community, family reunification issues, aimed at informing high school students immigration issues, acculturation and about the realities of gang life as well as assimilation issues, educational problems, communicating a message of hope that emotional trauma, teen pregnancy, individuals can change the course of runaways, negative peers, loneliness their life. and the experience of being “parachute children” or children who have been sent To make their message more credible to this country without their families. with students, staff dress in typical “street clothes” and share personal accounts of The activities developed by CMI broadly their experience confronting gangs or cover these issues. CMI seeks to provide a involvement with a gang. Their stories positive alternative to youth through group recount the various reasons they joined settings, while one-on-one mentoring a gang, the violence they were exposed provides more tailored attention to to and how they were eventually able to the particular needs of the individual. transform themselves. Their testimonies Outreach programs involve street outreach, serve as both deterrents to at-risk youth and community outreach and communication as examples to those already in gangs that with schools, parents, juvenile corrections getting out is possible. The presentations facilities, social service agencies and can also establish trust with youth on churches. Most of the young people who dilemmas in their lives related to ethnicity, come to CMI are recruited through active culture, language and other issues. The

Washington Office on Latin America October 2008 19 presentations are often followed by a “shout Prevention and Intervention Program out session” in which CMI staff make encourages them to resist gang themselves available to students interested involvement and destructive behaviors by in sharing their thoughts and concerns connecting them with constructive social either in a group or one-on-one setting. and recreational activities. One of the first dynamics the staff identified in their The Survivors Youth Group needs-assessment process was the ability of a gang to provide certain types of support, CMI does outreach to middle school protection and relationships normally students through an after school “DJ club,” offered in a family setting. CMI recognized where students express themselves through If an individual gang that any intervention and rehabilitation music and learn public speaking skills program would have to provide a positive member decides he or by performing in front of their peers. In alternative to these needs. she wants to leave the order to be part of the club, students must also participate in the Survivors Youth gang, staff accompany The program also works directly with Group, which focuses on teaching youth current gang members. One component the youth through the conflict resolution, anger management, of this work is assistance in leaving the rumor control, getting them involved in process, always mindful gang through a process known as “flipping community service and helping youth see out”. If an individual gang member decides that the youth must do the world in a different light where they he or she wants to leave the gang, staff so when he or she is focus on their strengths and opportunities accompany the youth through the process, rather than their fears and weaknesses. ready, independent of always mindful that the youth must do so when he or she is ready, independent any outside pressures. “Unidos” Youth Group of any outside pressures. When a youth This program is a youth leadership decides to leave the gang, precautions development initiative at the high school are taken to make sure the process is well level. Members of the group concentrate documented as risks are high for both on setting goals for graduating high school, youth and staff involved in the process. attending college, scholarship attainment, Current gang members are encouraged to community service, and personal discontinue violent and illegal activities in development, among other goals. This favor of constructive, socially acceptable, group used to be called “Latinos Unidos” and enriching activities and positive but youth changed its name to be more relationships. It is important to create inclusive to the whole school community. these opportunities during this time, as leaving the gang creates a vacuum which must be filled with positive alternatives. Parent Workshops CMI also provides parenting workshops Mentoring Program which focus on equipping parents with communication skills to improve their The Mentoring Program, offered in both interactions with their teenagers. The English and Spanish provides mentoring parents are also taught how to assess services for at-risk youth. Mentors meet changes in their children’s behavior which individually and in small groups with could indicate possible gang involvement. high-risk youth to try to play a positive CMI has provided these workshops for role in their individual development and Parent-Teacher Associations, churches, to serve, as needed, as advocates within the government groups, and other nonprofits. education and judicial systems on behalf of youth. Mentoring services are offered to youth between the ages of 9 and 21. Due Gang Membership Prevention to a general lack of community services for and Intervention Program 18-21 year-olds, CMI has made a conscious When high-risk young people express effort to extend the upper-age limit on interest in CMI, the Gang Membership mentoring services.

20 Daring To Care: Community-Based Responses to Youth Gang Violence The CMI team was often invited to “roll call” sessions, at which police W o r ld V isio n CMI Youth participating in one of CMI’s outreach programs gather donations for other community-based organizations. officers at the beginning of their work day meet to receive briefings on Community Outreach Campaign These meetings are essential in obtaining activities and issues In addition to the direct work with young useful suggestions from officers and to meet people, CMI, through its Community all officers from the Herndon police force within the community. Outreach Campaign, builds and strengthens that work various shifts. These meetings relationships between CMI and others also allowed CMI staff to tell police of the concerned with youth violence. Social and organization’s goals and activities. economic conditions in the community are continually changing, and staying current During these meetings, police officers is a top priority. To this end, CMI has one suggested that CMI create “outreach cards,” full-time Community Liaison whose job is or informational materials geared towards to maintain CMI’s community relationships at-risk youth, to be given to youth by and inform other staff of relevant changes. police officers while on patrol. The police The community liaison regularly attends department, in return, provided CMI with meetings of local organizations and access to a direct line to the police dispatch coalitions working on issues related to office in case of emergencies, rather than youth violence, as well as schools, churches having to call the general 911 operators. and other juvenile service providers. Respect for each other’s work and a CMI also regularly offers gang prevention willingness to collaborate are key to the presentations and workshops to families and success of this initiative between CMI and community residents. local police.

As part of its efforts to build bridges to the community at large, CMI has fostered Collaborative Strategies a unique relationship with local law Community outreach was particularly enforcement. The CMI team was often important due to the stigma often associated invited to “roll call” sessions, at which with working directly with gang members police officers at the beginning of their and potential gang members; CMI wanted work day meet to receive briefings on to ensure that stigma would not be attached activities and issues within the community. to their work. Many community groups are

Washington Office on Latin America October 2008 21 wary of being associated in any way with Impact and Limitations gangs, so it was necessary to convey the idea that prevention and intervention programs As of September 2007, CMI served 7,986 working directly with gang-involved youth youth and 2,568 adults. A total of 211 are intended to contribute to the betterment youths met regularly with program staff, of the community as a whole. Through this 948 youth and 1,078 adults attended essential process of relationship building and workshops, 29 youths were involved consultation, CMI was able to establish itself in direct mentoring relationships, and as a trustworthy and capable organization 405 parents and family members were participating in structured interactions in The close collaboration that exists the community. A total of 5,479 youth and between CMI and local law enforcement is 1,287 adults have attended presentations. particularly noteworthy. The collaboration was initially mandated within the CMI staffers evaluate the success of their The biggest obstacle guidelines that accompanied the U.S. programs through community response faced by CMI is the Justice Department grant that established surveys (distributed at workshops, CMI called specifically for coordination presentations, events, activities and lack of consistent between the police and the program. In awards), notes from outreach done with funding. It would like to addition, a series of initial conversations their clients and weekly staff updates on increase the depth and between Henry Pacheco and the leadership client progress. The organization also plans of the police force significantly contributed to eventually develop surveys for program breadth of programs to the growth of mutual trust between the participants to complete at the conclusion and strengthen police and CMI as well as an understanding of its OJJDP grant. connections in for each others’ work. The biggest obstacle faced by CMI is Central America the lack of consistent funding. In the and Mexico. Safety future, it would like to increase the depth and breadth of programs and strengthen Although CMI has never been threatened connections in Central America and by gangs and believes that gangs do not see Mexico. Given higher and steadier CMI’s work in a threatening manner, staff funding, CMI would expand its programs take special precautions to ensure their into surrounding jurisdictions, develop safety and that of their participants at all an extensive at-risk youth education times. It is CMI policy for staff to have component aimed at local educators, and initial one-on-one meetings with youth at increase CMI staff. neutral community sites. Even so, CMI takes serious precautions in regard to the personal safety of staff. Outreach workers wear level- Conclusion two bullet proof vests and ID cards with pertinent emergency information such as Though CMI is a relatively young their blood type. While doing outreach, staff program, its staffers have managed to work in pairs and, as mentioned above, are reach out to a significant portion of the able to contact the local police through a youth in their community. They have direct dispatch number should an emergency accomplished this by pro-actively reaching arise. All members are trained in CPR, first out to families, schools, police and other aid, aggression protocols, crisis prevention existing institutions to provide support and intervention, and are accredited by local for at-risk youth. Their dedication and law enforcement as Certified Basic Gang willingness to coordinate among these Specialists. CMI believes that attention various groups has had a positive impact to safety and recognition of the inherent on the community and has complemented danger involved in their work has helped the programs they run which provide them to establish credibility with local youth with concrete alternatives to police. joining gangs.

22 Daring To Care: Community-Based Responses to Youth Gang Violence The Gang Intervention Program is a model for the principle that a range of community institutions should come together to address the problems of youth violence. Created in response to an alarming upsurge in violence in the Columbia Heights and Shaw neighborhoods of Washington, DC, GIP has proven to be highly successful and can serve as an example for other communities. The model makes use of existing resources in the community (social services, police, schools, health centers) and links them to serve youth in need of help as thoroughly and efficiently as possible. Local government participation has ensured a high level of coordination among the various actors— something which has been effective in the short term and will be necessary for continued results in the longer term. GIP’s experience also demonstrates that locally designed initiatives ought to be federally funded.

GANG INTERVENTION Partnership (GIP) Columbia Heights/Shaw Neighborhood Washington, DC Portions of this summary draw on an evaluation of the GIP program completed by the Center for Youth Policy Research.1

etween 1999 and 2003 a series of in the neighborhood and to organize gang-related homicides committed extracurricular activities and sporting Bby Latino gang members shocked events. Local law enforcement decided to the Columbia Heights and Shaw increase police presence in the area. Over neighborhoods of Washington, DC, two time, these efforts became more organized. inner-city neighborhoods with growing The police department formed a special Latino populations, including many task force to ensure collaboration and recent Central American immigrants information sharing between police and and their children. Residents were participating community organizations; horrified at the violent deaths of several school administrators, teachers and parents young people which were followed by held regular meetings on the problem; and non-fatal retaliatory shootings. The the city requested federal funding from the distress and anxiety caused by the Department of Justice to bring all of these shootings galvanized the community to efforts together into a cohesive whole. respond—as a community. In August 2003, then Metropolitan Police After a gun battle broke out in broad Department Chief Charles Ramsey and daylight in 2003 on a busy street two City Councilman Jim Graham established miles from the White House, church the Gang Intervention Partnership groups, neighborhood associations, service (GIP) in collaboration with several providers and other community groups community agencies. The lead agency decided to take action. More than 200 was the Columbia Heights/Shaw Family representatives from law enforcement, Support Collaborative, widely known community agencies and concerned citizens as the Collaborative. GIP was originally came together at an emergency meeting intended to be a six-week program that to discuss a common strategy aimed at would respond to the emergency caused stemming the tide of youth violence. by the violence through intensive The strategy would include prevention, coordination between various city agencies, intervention, and law enforcement. private groups and police. As the program Out of this meeting, several community developed, those actors developed stronger organizations decided to hire outreach ties among each other, a process which workers to be in direct contact with youth in turn encouraged financial backers to

Washington Office on Latin America October 2008 23 extend their support for the initiative. The periods of alone time without supervision; program is now in its fifth year. unemployment; inadequate extracurricular activities; weak social controls; frequent GIP promotes a holistic and comprehensive association with delinquent peers and a approach to reducing youth violence in the lack of interaction with pro-social peers; Columbia Heights/Shaw neighborhoods, and low commitment to school coupled particularly among Latino youth. Supported with low expectations for success. by an annual grant from the District of Columbia Mayor’s Office on Latino Affairs, Many of these problems in the community GIP unites various agencies including are linked to poverty and social community service providers, a special marginalization, both particularly relevant The program’s success Metropolitan Police Department Gang to immigrant families in the United States. is attributed to the Intelligence Unit, neighborhood schools, To tackle these challenges that put youth at the U.S. Attorney’s office and others in risk of joining gangs, GIP provides support commitment of time, the judicial system, and local government from various angles. personnel and resources officials. of key participating GIP is based on five core strategies: Programs agencies. More providing direct outreach to gang- importantly, it is the high involved or at-risk youth and their The five part GIP strategy includes: families, educating parents and members level of coordination of the community, facilitating community 1. Outreach and collaboration members’ access to social services, building GIP channels its outreach to gang- strong police-community ties, and related youth and their families through between these actors “capacity building” or strengthening the the schools. With the cooperation and that contributes to GIP’s community’s capacity to respond to gang good faith of school administrators, GIP success. violence in the future by ensuring that all members provide regular presentations social service providers and government and educate students and faculty on gang- agencies can mobilize quickly in response related issues. Also, GIP members identify to an emergency. The program’s success youth who need support and then put them is attributed to the commitment of time, and their families into contact with social personnel and resources of key participating workers and other services. agencies. More importantly, it is the high level of coordination and collaboration The Columbia Heights/Shaw Family between these actors that contributes Support Collaborative assembles a team to to GIP’s success. The multi-sectoral work with each individual young person approach ensures optimal communication, who has been identified as being gang- information sharing, strategy development, associated or at-risk. The teams get to know service provision, and timely response to the youth and find a positive figure in his or new situations. her life that can provide a mentorship role, such as a teacher, pastor, or family member. The team calls together a family group Community Context conference to try to identify the reasons for concern about the youth and to decide There are a variety of factors that put youth together how to address these concerns at risk for gang activity in the Columbia Heights and Shaw neighborhoods. Some of the challenges youth face include living in 2. Public Education an economically distressed neighborhood; GIP members offer workshops, minority status; living in a single-parent presentations and trainings in an effort to family and/or in poverty; a concentration reach out to media, professionals, and local of people in limited space (especially businesses to eliminate myths about gangs in large apartment complexes); long and educate people about what causes

24 Daring To Care: Community-Based Responses to Youth Gang Violence youth to join gangs, or “push factors.” Police Department and the community The partnership stresses community groups. This level of collaboration is education—including highlighting how unusual, and it reflects the trust that has the gang phenomenon is also a mental been built over time between the police health issue and an outcome of social and community groups. GIP holds weekly marginalization. meetings between law enforcement and community organizations to discuss Recognizing that many parents know little ongoing cases and their implications for the about gangs or the problems that young community. Police officers working with people confront, GIP works on parent GIP focus on three activities: intelligence education to make their programs easy to gathering, enforcement, and intervention understand and applicable to daily life. and prevention. While the first two Removing the blame Role-playing is regularly used to convey activities are standard law enforcement factor increases the messages. Because the stigma attached to strategies, the third is an innovative gang involvement is so strong, a central approach requiring coordination between chances that parents will tenet of the parent education and outreach school officials and law enforcement, recognize if their child is is to address the guilt felt by parents of educating school staff and administration at risk of joining a gang gang-involved youth as well as the denial about how to prevent gang-related violence that their child may be involved in a gang. within the school and instructing officers or already involved in a Removing the blame factor increases the in targeted schools to notify the proper gang and will respond chances that parents will recognize if their entities when they come across information child is at risk of joining a gang or already about gang behavior within the school. to their child’s needs. involved in a gang and will respond to their child’s needs. GIP believes that an initial focus on prevention is imperative and that law enforcement is an essential component 3. Increased Access to of these efforts. For this reason, law Social Services enforcement officers have collaborated GIP strives to improve and expand young closely with schools and service people’s access to social services, diversion organizations. They monitor certain at-risk activities and family strengthening youth and regularly share information programs. This component involves gleaned while on patrol with school forming partnerships and helping other staff, students and service providers who agencies gain access to the resources are in the best position to prevent gang and services they need to serve their violence. This sharing of information is community better. For example, key efforts a two-way street as schools and service have been made to encourage youth to providers provide useful information to utilize the YMCA and its services, as law enforcement to help them prevent Latino youth were not initially comfortable crimes and appropriately target criminally going there. Overall, this component has involved youth. involved targeting the numerous youth- service programs that existed prior to GIP’s founding and helping them to focus 5. Building Community Capacity on collaborative strategies that target to Respond gang-involved youth and engage them in The GIP has taken several steps to build powerful and effective diversion, or positive community capacity. It has coordinated alternative activities. existing community youth workers to create a “Cool Down” group that represents approximately 15 different agencies. These 4. Building Police-Community youth workers are intensively trained for Partnerships deep intervention with gang involved GIP includes close collaboration between youth and work to resolve specific problems units of the Washington Metropolitan and respond to crises. Capacity building

Washington Office on Latin America October 2008 25 GIP Network of Support Services for Gang Involved Youth and Their Family

Metropolitan Police Department DC Superior CSOSA Court Social Services

DC Dept. US of Mental Attorney’s Health Office

CH/S DC Office of Family Support Gang-Involved the Attorney Services Youth General

DC Dept. of Youth Public Schools Rehabilitation Services

US DOJ Latin Weed and American Seed Youth Center Neighbors’ Consejo In working with u t h P olic y R e s ear c Cen t er fo r Yo different community support agencies, This graph depicts the government agencies and community partners that individually and collectively impact gang- involved youth through the Gang Intervention Partnership. GIP often finds that its greatest task is helping also focuses on training key community Washington is fortunate in having a range these agencies refine and faith-based agencies, maintaining of educational, social and community and improve their documentation and tracking system to service programs for young people, some assess the impact of gang intervention funded by local or national government services. efforts, and establishing better relationships programs, some funded by foundations, of trust between the Metropolitan Police and some supported by local churches Department (MPD) GIP Unit and youths or community groups. In the Columbia and their families. Heights and Shaw neighborhoods, the Collaborative is the co-chair of the GIP program along with the Metropolitan Collaborative Strategies Police Department. Together, the police department and the Collaborative convene GIP counts on strong community regular meetings, develop new strategies, support for the success of its partnership and facilitate cooperation between all parts between gang-involved youth and their of the program. families, police and government agencies, community groups and schools. In working The Collaborative’s mission is to help with different community support agencies, protect children and families from child GIP often finds that its greatest task is abuse and neglect and to promote healthy helping these agencies refine and improve families in the communities. CH/S FSC their services. serves families with children that live in

26 Daring To Care: Community-Based Responses to Youth Gang Violence the Columbia Heights and Shaw areas in reflects the trust that has been built over addition to working with Latino families time between police and community without access to Spanish speaking groups. providers. The Collaborative has 40 staff members and operates on an annual budget To measure the impact of its services in of about $6 million. the community, GIP regularly administers surveys to its clients. Team members meet monthly and report on activities in Safety relation to yearly goals, which are defined at the beginning of the fiscal year. The Although GIP works directly with gang- evaluations are done quantitatively, using While GIP staffers involved youth, security has never been a benchmarks and subsequent strategy problem for the organization. Eliminating reassessment if needed. believe they have the gang is not the focus of GIP’s achieved impressive participating agencies. The partnership GIP staff note that while their programs and visible progress in focuses, rather, on targeting certain specific have been largely successful, many activities of the gangs (e.g., skipping challenges remain. Limited financial reducing gang violence, parties) and on strengthening families and resources are a constant obstacle and the they feel they have neighborhood institutions that are best program is understaffed and for the level of equipped to prevent youth from joining work it carries out. When their budget is only begun to scratch gangs in the first place. Because eliminating broken down, GIP staff estimate that they the surface. gangs is not a stated goal, gangs do not see are able to spend only $5 per month per GIP as a direct threat. youth. GIP staffers also note that because their work is supported by annual grants, GIP does, however, take precautions to they can tackle only year-long strategies, avoid gang retaliation. It keeps a low profile making it difficult for them to create and after serious incidents occur and abstains carry out more long-term goals. from responding to media requests asking for comment on specific acts of violence. In addition, staffers believe the public GIP maintains a focus on the needs of the schools could do more to support GIP’s individual youth it works with and does not work on a city-wide level. Specifically, the allow gang identity to factor in to its work. public school system is not yet mandating that all DC public schools participate in the GIP initiative, and those that are Impact and Limitations participating could further the program’s impact by assigning more senior staff to At the time of the evaluation completed GIP as representatives. Outside the public by the Center for Youth Policy Research school system, GIP staff says it would in September 2006, 16 local organizations, be helpful to have more regular contact government offices or schools had been and coordination between participating incorporated into the GIP initiative, organizations, as well as greater relationships with over 200 families had participation from local law enforcement. been formed through the parent outreach program, and 50 families received intensive While GIP staffers believe they have intervention services. According to achieved impressive and visible progress in Graham’s office, there has been only reducing gang violence, they feel they have one Latino gang-related homicide in the only begun to scratch the surface. Deeper District of Colombia since October 2003. problems need to be addressed. New gangs with younger members are still appearing, One successful and unusual element of GIP and the partnership has much work ahead has been the close collaboration between of it to reach its goal of reducing gang the Washington police department and membership and halting the proliferation community groups. This cooperation of new gangs. Deep-rooted social problems

Washington Office on Latin America October 2008 27 such as poverty, disenfranchisement, lack to the coordinated efforts of the agencies of affordable housing and deteriorating participating in the Gang Intervention schools will need to be addressed. Partnership. While the problems of gang violence faced by other cities and countries are not identical to those of Washington, Conclusion and the programs developed by individual agencies will differ based on local The Columbia Heights and Shaw circumstances and cultural differences, the neighborhoods have seen a sharp and collaborative model developed by the GIP lasting decrease in the number of violent participating agencies is one that can be and criminal acts perpetrated by Latino replicated elsewhere provided that there is gangs since 2003. The improvements in a genuine commitment on the part of all public security are primarily attributed actors involved.

Endnotes 1 Center for Youth Policy Research, Evaluation of and Recommendations Regarding a Program to Reduce Criminal Activity of Latino Gangs in the District of Columbia, September 16, 2003.

28 Daring To Care: Community-Based Responses to Youth Gang Violence Gangs and Youth Violence in Central America

n the 1980s and the early 1990s, El brought back by young people returning Salvador, Guatemala and, to a lesser from the United States in the 1990s, Iextent, Honduras were torn by civil that led to the gang violence problem wars that pitted right-wing armed forces that emerged in Central America in the and paramilitary squads against leftist late 1990s and the early years of the 21st guerrillas and their purported allies, century. which often included unarmed popular organizations. The vast majority of those Violence and insecurity grew throughout killed were civilians. The wars led to the Central America beginning in the late displacement of millions of people to major 1990s. Homicide rates, which had always Poverty and the cities, contributing to rapid urbanization been high by world standards, dipped in failures of development in all three countries, and significant the mid-1990s as the region’s wars came emigration, mainly to the United States. to an end and police and justice systems policy, along with the In El Salvador alone, about 20% of the underwent reform. Murder rates then began cultural and economic population is estimated to have fled the to climb again and today are among the marginalization of youth country during the 1980s. highest in the world. Gangs are one factor in this rise, but not the only factor. The in Central America, Those migrants included many children growth of drug transshipments through led to the growth of and teenagers. In Central American Central America has contributed as well, as immigrant communities in the United have other forms of criminal activity. gangs in some poor States, especially in Los Angeles, many neighborhoods. of those young people were exposed to Although there are many forms of crime long-established U.S. youth gangs. The in Central America, youth gangs have two most-widely known gangs in Central been a particularly visible form, with America today, the Mara Salvatrucha, or their territorial graffiti and tattoos. In MS-13, and the Barrio Dieciocho, or 18th response to growing insecurity over the Street Gang, emerged first in Los Angeles past decade, governments sought to appear in immigrant communities. As the wars “tough on crime” and focused on youth ended and people began migrating back gang violence. Beginning in 2003, various home or were deported, young people Central American governments embarked who had become involved in gangs in the on anti-gang policies that focused narrowly United States brought the gang culture and on suppression. In El Salvador, anti-gang experience from U.S. cities back to Central legislation and police practices targeted America in the early and mid-1990s. youth. El Salvador’s president called the first phase of these policies theMano Youth gangs have been documented as Dura plan, or “heavy hand”; the second existing in Central America since at least phase was known as plan Super Mano the 1960s. Poverty and the failures of Dura. A similar approach in Honduras, development policy, along with the cultural including both legislation and police and economic marginalization of youth practice, was known as “Zero Tolerancia” in Central America, led to the growth of or zero tolerance. Guatemala did not pass gangs in some poor neighborhoods. These repressive legislation, although it did gangs were highly differentiated and local. implement heavy-handed police practices Youth were drawn to the gangs in search known as Plan Escoba. In El Salvador and of protection, respect, identity and support Honduras, legislation made it a crime to that was often lacking in their lives. It belong to a gang; in all three countries, was the combination of these pre-existing repeated police sweeps rounded up young local gangs with the gang culture and style men who had tattoos, wore gang colors, or

Washington Office on Latin America October 2008 29 sometimes dressed in what police judged to the Presidential Commission for Human be gang styles. In most cases, those arrested Rights in Guatemala, and the National were released without charge after several Program for Prevention in Honduras) days in detention. the agencies are limited in their scope, poorly funded and depend largely on the This enforcement-based approach was financial support of international donor designed to accomplish several objectives: agencies. In all three countries, most youth disrupt and deter gang activity, gather gang violence prevention, intervention, information and detain serious criminals. and rehabilitation programs have been In practice, the impact on gang violence implemented by church groups (Catholic, Most experts believe has been very different from what was Protestant and evangelical), community anticipated. The enforcement-based organizations, or local governments in that the broad police approach may have enabled police to conjunction with civil society. The sections pressure applied under gather information about gang membership that follow will describe the work of three these tactics did little and gang activity from those arrested and of those civil society efforts. certainly led to an increase in the number to weaken gangs and, of individuals arrested and eventually Striking the right balance between instead, contributed to sent to prison for gang-related crimes. prevention, intervention, and law But the tough, suppressive approach has enforcement is always difficult for the gangs organizing not reduced overall homicide or gang- governments when dealing with gangs. and structuring related crime rates in the five years since Local governments in the United States themselves in more it began. Most experts believe that the still struggle to find that balance, and broad police pressure applied under these prevention and intervention programs sophisticated ways to tactics did little to weaken gangs and, frequently must compete for funding and avoid police pressure. instead, contributed to the gangs organizing political support with law enforcement and structuring themselves in more efforts. In Central America, prevention sophisticated ways to avoid police pressure. and intervention programs are at even Meanwhile, the approach has raised serious greater disadvantage, with less funding concerns about due process and the human and support from the region’s crime-weary and civil rights of youth, stretched already public. Governments in Central America frail judicial systems, and increased the must begin to develop prevention efforts— arbitrary authority of police. including community building, education and cooperation, needs assessments, and The focus on these repression-heavy collaboration with law enforcement—on approaches has drawn attention and both the local and national levels if resources away from critically needed they are to make long-term progress prevention and intervention efforts. against the gang phenomenon. This Though all three countries maintain means creating policies that reflect a government agencies charged with better balance between prevention and developing and implementing youth gang suppression and offer technical support violence prevention, intervention and and financial resources to groups focused rehabilitation programs (the National on comprehensive approaches to youth Council of Public Security in El Salvador, violence.

30 Daring To Care: Community-Based Responses to Youth Gang Violence Grupo Ceiba recognized that communities vary and that gang violence prevention must be tailored to the needs of specific communities. It conducted community assessments and designed its programs to respond to the needs identified. Grupo Ceiba embodies the principle of peer-to-peer work. It empowers youth by teaching them job skills that will allow them to discover their strengths, reach out to other youth, and become leaders in the community. These new leaders contribute a deep understanding of the neighborhood, its needs and its resources, and can help create programs that bring the community closer together. In turn, the community will develop a healthy environment that keeps youth away from gangs.

GRUPO CEIBA The community youth Association for Community Promotion mentoring program, and Development established in 1989, is Guatemala based on the idea of accompaniment, a key concept of Ceiba’s work rupo Ceiba is a Guatemalan the assistance of Grupo Abel, an Italian non-governmental organization organization which had done similar work that means helping Gthat operates a prevention in Asti, Italy, Father Notta conducted a youth resist the lure of program focused on at-risk youth in and community needs assessment which led to around Guatemala City. While Grupo the development of Grupo Ceiba. gangs by supporting Ceiba started with a focus on drug and them as they face the gang prevention, it has now expanded its In 1995 Ceiba attained legal status as daily challenges of mandate to include youth violence and a non-governmental organization and security more broadly. continued to grow and establish itself poverty, violence and in other marginal neighborhoods on alienation. Grupo Ceiba was founded in the outskirts the outskirts of the capital. As of 2008, of Guatemala City in a neighborhood Ceiba has five sites in Guatemala and called El Limón, which had been settled by one in Bogotá, Colombia and employs people displaced during the civil war. The approximately 100 people. About three- majority of its original inhabitants were quarters of these are salaried employees small farmers and indigenous people who with the remainder serving as volunteers in fled violence in rural areas. Marginalized Ceiba’s educational centers. In addition, it from its foundation, the community has receives about 400 volunteers annually. long suffered from extreme poverty, lack of community services and tenuous family The organization operates largely through structures. the assistance of international donors from countries including Canada, Germany and It was in this context that an Italian priest, the United States and foundations such Father Pedro Notta, worked as the pastor as the W.K. Kellogg Foundation and the of a local church, Christ our Peace, in Soros Foundation-Guatemala. Ceiba has the 1980s. As pastor he became acutely also received support from TROCAIRE aware of the problems facing Guatemalan (the overseas development agency of youth and the lack of support mechanisms the Catholic Church in Ireland) and the available to them. In 1989, he started a Inter-American Development Bank (IDB), community youth mentoring program among others. based on the idea of accompaniment, a key concept of Ceiba’s work that means helping Ceiba also receives funding from the youth resist the lure of gangs by supporting Guatemalan government, although them as they face the daily challenges of this amounts to only 10 percent of the poverty, violence and alienation. With organization’s annual budget. An additional

Washington Office on Latin America October 2008 31 10 percent comes from private individual center for computer training along with donations, profits from various Grupo alternative schooling for middle-school- Ceiba ventures and the organization’s own aged youth. savings. For fiscal year 2006, Grupo Ceiba’s • Bogotá, Colombia: Ceiba opened its budget was about $300,000. first location outside Guatemala in late 2007. Located in the neighborhood of Since its foundation, Ceiba has served some Fontibón, this center offers schooling, 50,000 people. Currently, the organization language and art courses, recreational serves about 1,500 youth regularly, and activities, family counseling as well as 5,300 on a more variable basis. About technology training. 60% of the youth it serves are male. Ceiba attributes this imbalance to stronger social stigmas that prevent women from joining gangs but is actively seeking equal gender Programs representation within its programs. Group Ceiba has several programs to reach out to young people. These outreach Community Context programs are based on consistent, direct intervention in affected communities Grupo Ceiba is active in some of to earn the trust of at-risk youth. The Guatemala’s most marginalized programs are aimed at developing communities, which are characterized by “organic” local youth leaders and fostering poverty, violence and unemployment. The peer-to-peer mentoring. Along with this group’s programs are designed to respond outreach to youth, Ceiba does broader to these needs and have a presence in the community work to strengthen community following locations: awareness about the root causes of youth violence and to break down negative • El Limón: the inaugural Ceiba center stereotypes of gang-involved youth. now serves more than 400 individuals. • Brisas de San Pedro: this Street Accompaniment and neighborhood suffers from particularly high levels of poverty as it is home Street University to many displaced families who were This program was Ceiba’s initial outreach forced to leave the capital city as a effort and is directed both at young result of overcrowding. This location people and the broader community. The serves approximately 250 youth. aim of the program is two-fold: a) to cultivate organic youth leadership, and • San Juan Comalapa: Ceiba’s presence b) to strengthen the social fabric of local in San Juan Comalapa was prompted communities. by a local youth who, at the time, was involved in a gang. After hearing about Ceiba’s work in El Limón, the Street Accompaniment young man repeatedly approached Street Accompaniment uses a peer-to-peer the organization to ask them to open outreach model to instill hope and build a center. This location now serves trust between participants and their peer approximately 500 youth. leaders. • Lomas de Santa Faz: this settlement, located on the outskirts of Guatemala The first step is to reach out to youths City, is extremely impoverished and is at risk of joining a gang to develop a the location of the newest Ceiba center. relationship of trust with them. Ceiba outreach workers begin by walking the • Mezquital: In the neighborhood La streets of the target community, as this is Esperanza (Hope), this location boasts a where at-risk youth spend much of their

32 Daring To Care: Community-Based Responses to Youth Gang Violence day. Through these regular caminatas, or walks, Ceiba staff also gain a better understanding of the community’s needs. Once a relationship is built between the outreach staff and an individual youth, the youth is invited to participate in certain Ceiba activities such as a soccer game. These activities serve as a stepping stone to becoming further involved in Ceiba’s other programs.

Regular contact with the community allows Ceiba to develop an assessment that identifies the unique problems faced by the area’s local youth. This helps Ceiba staffers address the community’s needs and develop a baseline that can be used later to evaluate their work. Gru po Ce ib a The next step of the Street Accompaniment program is to cultivate A group of young men meet with a Grupo Ceiba staff member youth leaders from within the community. Street University who visits their neighborhood as In selecting these individuals, Ceiba In an effort to incorporate the community part of the organization’s Street Accompaniment program. staffers look for natural leaders and, once into their outreach, Ceiba created the they are identified, offer them education Street University program to complement and training on civil rights, political its Street Accompaniment work. The analysis, positive citizen participation Street University consists of a Center of techniques and methods of interacting Studies and Documentation which collects with other community groups. Under data on the communities in which Ceiba Regular contact with the guidance of a Ceiba professional, works, and includes a library and internet the leader later facilitates group sessions center open to the public. The libraries are the community allows with other young people to discuss home to traditional resources as well as the Ceiba to develop an issues such as gangs and violence as local data collected by youth involved in well as personal and familial problems. the Accompaniment project. The library assessment that The groups are tasked with organizing and Internet center are open to the public identifies the unique community activities such as sporting which, in addition to providing resources problems faced by the events, trainings, and informational to the community, also helps build positive meetings. Youth leaders are also involved community relations. area’s local youth. This in monitoring their own communities to helps Ceiba staffers keep abreast of individuals who may be at risk for involvement with gangs, drug Alternative Education address the community’s traffickers or organized crime. Grupo Ceiba recognized that alienation needs and develop a from the formal educational system is a A third step in the program is a Youth significant risk factor for gang involvement. baseline that can be Parliament, which brings together young The Alternative Education program was used later to evaluate people from throughout Central America. designed to respond to feelings of isolation their work. The parliament convenes on an annual and hopelessness associated with a youth’s basis, providing a space for its delegates to exclusion or expulsion from the formal address their concerns as Latin American educational system. The Alternative youth. It was conceived in response to the Education program boasts the largest lack of opportunities for young people to number of participants of any Ceiba program be heard by regional and international and comprises several education projects policy makers. aimed at different ages. The primary-level

Washington Office on Latin America October 2008 33 curriculum has been approved by the Guatemala, where estimates suggest that Guatemalan Ministry of Public Education three quarters of the workforce participates and is a legally recognized alternative to the in the informal economy, such training state-run system. The following are some is invaluable. The program focuses on components of the program. providing students with a decent wage, enhancing self-esteem and promoting Light and Hope Alternative School cooperation and solidarity among the participants. Some of the skills taught This program targets primary-level children include baking, metal work, industrial who, for various reasons, are not attending cooking, and computing. state-run schools. Whether the decision to As director Marco Castillo leave was voluntary or a child was expelled, says, “We cannot finish these children are often current gang Technology Training members or youth at high risk of joining a Through its business education program, this process without the gang. The program’s curriculum is designed Grupo Ceiba also offers technology training economic component.” to develop critical reading and writing, web in areas such as computer repair and web and graphic design. Some graduates of Ceiba stresses job and English language skills. Recreational activities are used to teach emotional this program have also come back to work training and attainment control and interpersonal skills. for Grupo Ceiba providing tech support of technical skills as or have formed cooperatives with fellow Ceiba students. avenues of stability and Educational Center financial security outside This program is aimed at older youth These cooperatives are designed to help and adults interested in continuing their individuals overcome the enormous the gang. education. It is not intended merely as challenges of opening a small business an outlet for advancing one’s studies in Guatemala. By using cooperatives as but as a space in which participants can their business model, Ceiba encourages build relationships with other community collaboration and solidarity between members and support each other participants in the program. Grupo Ceiba academically and personally. provides youth with the necessary start- up capital with the understanding that “La Ceibita” Daycare Center the cooperative will develop as a part of the larger Grupo Ceiba organization. In In addition to programs oriented to youth return, Grupo Ceiba keeps 50 percent of not in the formal education system, Ceiba’s the cooperatives’ profits for startup and Alternative Education Program includes maintenance costs while the members a daycare program for single mothers. of the cooperative receive the other 50 This center responds directly to the percent. There are currently 10 of these economic reality of many young mothers cooperatives operating in Guatemala. in Guatemala who must work to make a living and are not otherwise able to care for their children themselves or pay for formal supervision. In mid-2008, a team of graduates of the Business Education program who Business Education now run the Computer Restoration In Ceiba’s view, a critical component Cooperative, participated in the national- of any prevention program is to provide level initiative “Open Schools”, which new opportunities to youth. As director is aimed at providing computers and Marco Castillo says, “We cannot finish this Internet access to outfit public schools process without the economic component.” in Guatemala. The program is backed by Ceiba stresses job training and attainment Guatemalan President Alvaro Colom. of technical skills as avenues of stability and financial security outside the gang. In

34 Daring To Care: Community-Based Responses to Youth Gang Violence Online Training Social Innovation in Latin America and Ceiba has recently developed a series of the Caribbean 2004-2005 competition online courses to extend its programs to sponsored by the Economic Commission people who are unable to visit one of the on Latin America and the Caribbean. Ceiba centers. Through the Internet, young people have access to a wide variety of Beyond the constant search for sustainable Ceiba programs. The online instruction is funding, Ceiba faces three central interactive and students are encouraged to challenges. First, the group must break communicate directly with the instructor through barriers to build trust with at-risk regularly via email. Approximately 100 youth and gang-involved youth. These young people live on the margins of society, both participate regularly in these on-line courses. Public ignorance and isolated and isolating themselves. This makes it difficult for them to seek out and misperceptions about Collaborative Strategies trust those who offer them an alternative. youth violence and its roots mean that Grupo Ceiba has deliberately placed Second, public ignorance and its facilities in the more violent and misperceptions about youth violence and prevention-focused marginalized parts of the areas it serves. its roots mean that prevention-focused organizations such as The organization prides itself on its organizations such as Ceiba face a difficult organic, bottom-up approach to combating working environment. News media Ceiba face a difficult the problems of youth gangs and youth contribute to the oversimplification of the working environment. violence, a strategy that that has generated gang problem by offering little analysis of excellent relations with the communities its root causes. Many community members in which Ceiba works. support heavy-handed responses to gang violence and believe that organizations Ceiba also enjoys good relations with local like Grupo Ceiba are coddling criminals. and national law enforcement. Although Ceiba does not condone the government’s Finally, in the face of high unemployment mano dura approach to gang violence, the and wages that do not meet the cost of living organization has been able to collaborate in Guatemala, gangs are an attractive option with authorities on the creation of for many marginalized youth. With very technology centers in some regional jails. limited economic opportunities, many young At the government’s invitation, Ceiba has people look to gang life as an alternative installed and staffed a technology center source of economic and social stability. inside a maximum security prison in the town of Escuintla, the first center of its kind in Guatemala. There are plans to Conclusion create similar centers in two other prisons. In the future, Grupo Ceiba will continue serving at-risk and marginalized youth Impact and Limitations in Guatemala. Though it acknowledges that the demand for violence prevention Grupo Ceiba evaluates the success of its services cannot be met by one, or even a work by the success of the youth it serves. handful of service providers, the team at When participants are able to obtain jobs Grupo Ceiba is committed to bringing hope and become self-sustaining individuals, and opportunity to as many young people Ceiba classifies this as a success. Ceiba as it can. With increased technical and currently employs several graduates of financial support from government actors, the program as members of its technology individual prevention programs could support team. The organization recently had lead more collaborative efforts and have a its work recognized by the United Nations, greater impact on the levels of youth crime awarded third-place in the Experiences of and violence in Guatemala.

Washington Office on Latin America October 2008 35 Paz y Justicia, part of the Honduran Mennonite Church, works under the principle that young people seek both identity and belonging. They need both guidance and encouragement to make positive decisions in their lives. Parents are working or sometimes absent, and the support networks of traditional extended families have been weakened or eroded; educators have so many demands that they cannot attend to students outside the classroom setting; broader community structures and support systems are less powerful than they once were. Paz y Justicia is an example of an organization whose work with young people is based on recognition of the importance of these institutions in the lives of young people. Its work in Honduras stresses strengthening communities, families, schools, and other sources of support. With positive alternatives available to them, youth are able to fulfill their needs without turning to a life of violence.

PAZ Y JUSTICIA Honduras

uring the 1980s, the Mennonite While the locations in which Paz y Church in Honduras began working Justicia works are all marginalized Dto improve living conditions for communities, local dynamics differ refugees who had come to Honduras fleeing within the three areas, requiring Paz y civil conflicts in neighboring El Salvador Justicia to tailor its programs accordingly. Emigration plays and Nicaragua. At the same time, true to For example, drug consumption and a major role in the the pacifist traditions of their faith, the trafficking are bigger problems in Tocoa and Choloma, a reality reflected in the deterioration of family Mennonites played an active role in the development of a national movement calling allocation of more time and resources units in Honduras, with for the establishment of an exception to toward HIV/AIDS education because many young people left obligatory military service for conscientious of the link between drug use and HIV objectors. It was from this movement, infection. While the communities’ needs to fend for themselves known as the Christian Civic Movement, differ in some respects, what unites them while waiting to join that Paz y Justicia, or Peace and Justice, is the lack of social service programs that parents and other was formed as an arm of the Mennonite work with gang-involved and at-risk Church in Honduras following the effective youth. family members who abolition of obligatory military service in have migrated to the 1994. With this victory, the Christian Civic Movement shifted its priorities and some of United States. Community Context its former members reorganized themselves around a new and growing problem in Paz y Justicia cites a variety of challenges Honduras: youth gang violence. This new that are common to Honduran youth living organization, Paz y Justicia, focused on in marginalized areas. Emigration plays a youth violence issues, and as the severity of major role in the deterioration of family the gang problem began to increase, Paz y units in Honduras, with many young people Justicia developed a pilot outreach project left to fend for themselves while waiting in Choloma, in the department of Cortés, to join parents and other family members in northwest Honduras, an area particularly who have migrated to the United States. affected by youth violence. These conditions are aggravated by poverty, a lack of economic opportunity, limited Paz y Justicia now has operations in education and recreational activity, drug three municipalities with high levels of trafficking and the culture of consumerism gang activity: Choloma, La Ceiba, and that characterize life in many Honduran Tocoa. Operating on an annual budget communities. All these conditions of approximately $92,000, Paz y Justicia contribute to the likelihood that a young maintains a staff of 13 full-time employees Honduran person will seek belonging, and some 30 volunteers. status and stability as part of a youth gang.

36 Daring To Care: Community-Based Responses to Youth Gang Violence Programs youth’s level of gang involvement. Some of the activities offered are sports, Five programs form the core of Paz y businesses and vocational trainings, Justicia’s prevention and intervention community service, music and other work. One program is specifically targeted creative arts such as drama and poetry. at intervention and rehabilitation Participants themselves guide the decision- of current gang members while the making process concerning which activities remaining three are prevention oriented. are offered to ensure the program is Paz y Justicia estimates that 98 percent of responsive to the unique needs of the the gang-affiliated youth who participate youth in each community. in its programs are male. The majority of females who do participate generally Paz y Justicia also provides gang- do so in an adjunct role, brought into involved youth with “accompaniment” the program as a result of a personal which refers to intimate, one-on-one relationship with a male gang member mentoring, prayer and reflection, who has decided to participate. and other personalized support. This accompaniment often takes Paz y Justicia Paz y Justicia staff Intervention and Rehabilitation staff into local courtrooms and prisons work with families to as staff accompany youth during legal of Youth Involved with Gangs proceedings and visit them during periods break down negative This program encompasses Paz y Justicia’s of incarceration. stereotypes, feelings of work with gang-involved youth and resentment and other operates in all three sites. Establishing Because Paz y Justicia recognizes the and preserving the trust of the youth decisive role that family can play in familiar barriers to the with whom they work is paramount to rehabilitating a gang-involved youth, reintegration of the youth the success of Paz y Justicia’s intervention the organization works with families to and rehabilitation programs. As such, foster supportive and accepting home into the family unit. the outreach process is approached environments for program participants. with extreme care and caution. The Paz y Justicia staff work with families to majority of participants are recruited by break down negative stereotypes, feelings Paz y Justicia, which identifies potential of resentment and other familiar barriers candidates through its familiarity with to the reintegration of the youth into the the communities in which it works; very family unit. few young people make initial contact of their own initiative. Paz y Justicia never initiates contact with an individual Preventive Education for gang member; to initiate a formal Youth at Risk of HIV/AIDS intervention process, gang leaders are In addition to high levels of violence approached first. The process begins with and gang activity, Honduras, like some the organization contacting a gang leader other Central American countries, has via an intermediary trusted by the gang a high rates of HIV, with 0.7 percent of leadership. Any attempt to circumvent or the population infected.1 Acknowledging disregard the leadership structure of the that many of the youth they serve are gang would be interpreted as disrespectful sexually-active from a very early age, and would eliminate the possibility that Paz y Justicia created a sex education gang members could participate. program to promote more responsible, healthy behaviors in both at-risk youth If a young person is already involved in a and local Mennonite young people. gang, Paz y Justicia focuses on establishing The two-week program is designed to or restoring a sense of trust and belonging educate participants on safe-sex practices, between the community and the gang- sexually transmitted diseases and the involved youth by providing constructive general implications of becoming sexually activities and relationships regardless of the active.

Washington Office on Latin America October 2008 37 One of the most memorable experiences for the organization is a Paz y Justicia-led reconciliation between members of two youth gangs, the Wonders and the Vatos Locos. After several years of working with Paz y Justicia staff member Denis Mata, members of the Wonders approached Paz y Justicia and asked if the organization could try and arrange a reconciliation between the Wonders and Vatos Locos. Paz y Justicia then approached the Vatos Locos about their willingness to enter into a reconciliation process with the other gang. Initially, there was significant distrust as to the true intentions of the Wonders in requesting such reconciliation. Some members of the Vatos Locos feared that the meeting was merely a ploy aimed at making members vulnerable to attack, but eventually, they agreed to participate.

Ground rules were discussed and established with both of the gangs in preparation for the meeting. All participants were to agree that they would arrive free of guns and drugs; bad language was also prohibited. The local Evangelical Mennonite Church was selected as the location for the meeting for its neutrality and because of their respect for the church.

Expectations for the reconciliation were high as the event had been widely publicized throughout the neighborhood for several weeks. On the day of the reconciliation, each gang entered the church separately. The Wonders entered first and occupied one side of the church. The Vatos Locos arrived next, but hesitated outside, fearful of entering the same building as their enemies. After some encouragement and reassurance from Paz y Justicia staff, the Vatos Locos entered the church, sitting on the opposite side of the sanctuary from the Wonders.

With the two gangs sitting inside the church, staff member Denis Mata then asked the youth to interchange seats with each other stating, “You’ve entered into this temple to take part in an act of forgiveness. We are all one church and now we’re brothers; you should not fear each other. You must break down the barriers that impede you from becoming closer.” With this, the young men got up and intermixed, hugging one another and crying.

With a safe and trustworthy environment having been established, a long process of reflection began. Several youth stood up and professed their willingness to end the cycle of violence and retribution between the two gangs; others asked forgiveness from rival gang members. Over the course of four hours, many of the gang members began to realize that they shared the same troubles and hopes for the future as people whom they had seen as enemies only hours before.

This initial step in the reconciliation created the framework for a sustained calm between the two gangs. Paz y Justicia staff are now able to work with each of the youth individually to provide them with opportunities and alternatives to the gang life.

School and Family communication skills can be very effective Peace Education in dealing with issues at home or at school, This program focuses on conflict analysis, which may lead to a young person wanting prevention and meditation, by training to join a gang. The program was created teachers, students and parents on skills after Paz y Justicia staffers noticed that such as active listening, anger management these kinds of skills are rarely taught in and conflict mediation. These types of schools or learned in the family setting.

38 Daring To Care: Community-Based Responses to Youth Gang Violence Street Accompaniment and Social Change Paz y Justicia also operates at the street level, working with at-risk youth who do not have a home, or “street kids”, as well as children living in unhealthy family situations and suffering from neglect. These activities center around conflict analysis, mediation and leadership training. There is a particular focus on cultivating leadership with street kids, as these youth are some of the most vulnerable to drug addiction, recruitment by youth gangs, or “sicariato”, the recruitment of young boys as assassins for hire. Paz y Justicia staff members who lead this program are leaders who are Paz y Ju stici a Paz already familiar with local actors and A Paz y Justicia staff member community dynamics. removes a tattoo from the arm of 332 of the Penal Code, which gave police a young Honduran. Paz y Justicia’s tattoo removal facility first opened the authority to arrest any individual with in 2003. Collaborative Strategies a tattoo and charge him or her with the crime of illicit association. This created Paz y Justicia places a premium on organic panic within many communities, leading relationships with community members young people to take extreme and harmful in all the areas in which it operates. measures to remove their tattoos as Recruiting local community leaders to professional tattoo removal can cost up There is a particular focus lead programs and activities with youth is to $200, making the process unaffordable essential to Paz y Justicia’s work. Without for most Honduran youth. Many young on cultivating leadership the participation of these local contacts, people resorted to more crude and harmful with street kids, as these gaining safe access to gang members who methods such as the use of battery acid, youth are some of the want to be rehabilitated would be nearly hot irons, and scraping off the skin with impossible and leave the organization a bottle cap. As a result, Paz y Justicia most vulnerable to drug isolated and ineffective. saw the need for a safe means of tattoo addiction, recruitment by removal and began looking for ways to youth gangs, or “sicariato”, Due to differences over organizational establish a tattoo removal service. Aware approaches to youth violence issues, Paz y that the Catholic Church was equally the recruitment of young Justicia has encountered some challenges concerned with the increasingly repressive boys as assassins for hire. in forming partnerships with other climate, Paz y Justicia approached the service providers and NGOs. The group Church in the area of Chamelecon with has, however, worked closely with the a proposal to establish a tattoo removal Catholic Church. The Church has been clinic. The clinic opened in 2003 and an important and stalwart civil society remains a very popular service with local partner as Catholic officials share both young people. Paz y Justica’s view of youth violence and gangs as serious social issues in Honduran The Catholic Church and Paz y Justicia society and the organization’s interest in have also collaborated in the community rehabilitating gang-affiliated youth. of López Arellano, where the organization formed community medical brigades and Paz y Justicia and the Catholic Church held joint peace walks led by local youth began their collaboration in 2003 to educate and raise consciousness in the following the passage of the “Anti-Gang community about youth violence and the Law” in Honduras, a reform to Article need for alternative solutions.

Washington Office on Latin America October 2008 39 Another vital Paz y Justicia ally is the low-cost, the organization faces regular National Commission on Human Rights financial constraints. Paz y Justicia would in Honduras, an autonomous government like to expand its activities and have a body created in 1992 to promote and presence in other municipalities with high protect human rights. Paz y Justicia levels of gang violence, something that is often denounces incidents of police impossible to do without a significantly repression against local youth before the higher and sustained level of funding. commission, a relationship which serves Additionally, some of the programs they as an important conduit for the type of would like to expand or strengthen require first-hand information Paz y Justicia is privy equipment and/or personnel that the Paz y Justicia staff seek to to because of its work with youth. The organization cannot afford. An example is Commission also plays the important role the vocational workshops which are very maintain a professional of interlocutor between Paz y Justicia and popular with participants because they relationship with the government officials such as the Attorney provide them with marketable job skills. police in order to General’s office and the police, creating Unfortunately, they are also one of the spaces for dialogue and facilitating the most costly activities to carry out due to remain both effective organization’s participation in national high overheard for supplies and special in preventing and forums on issues related to youth violence. instructors. responding to crime, and In addition to financial constraints, certain trustworthy in the eyes Safety social dynamics also pose a challenge to of the youth. the work of Paz y Justicia. While tensions The safety of Paz y Justicia employees between police and civil society have and volunteers is an ongoing concern. decreased markedly in recent years, Threats and minor crimes against staff the late 1990s were a difficult time for are not uncommon and the organization the organization due to the Honduran exercises extreme caution in its dealings government’s hard-line mano dura approach with local gang leaders. Because of their to youth agangs. Such policies posed serious work, Paz y Justicia staffers are sometimes complications for outreach workers who perceived as gang collaborators by the local were dealing with gang-involved youth. community and suffer retaliation as a result. Public interactions with known gang Conversely, being seen as a collaborator members became virtually impossible for with local police can also have negative service providers for fear of reprisal from consequences for the organization. Due law enforcement. More recently, however, to the hostile relationship between law the relationships between civil society enforcement and local youth, Paz y Justicia groups, NGOs and law enforcement staffers must navigate their relationship have improved, allowing Paz y Justicia to with police very carefully. They seek to interact much more openly with gang- maintain a professional relationship with involved youth without fear of negative the police in order to remain both effective repercussions. While engaging a known in preventing and responding to crime, and gang leader is still not tolerated by police, trustworthy in the eyes of the youth. outreach with lower-level members is generally allowed to take place without interference. Impact and Limitations Paz y Justicia estimates that it has served Conclusion about 320 young people since its founding. It does not believe the need for its services Honduran society is under stress as incomes will diminish in the near future. lag behind soaring consumer prices. The lure of the U.S. wage has led to the Although the activities and services deterioration of many Honduran families, offered by Paz y Justicia are relatively with many parents unable to provide their

40 Daring To Care: Community-Based Responses to Youth Gang Violence children with the resources, time and many hats—teacher, negotiator, facilitator, support they need. Paz y Justicia seeks to mentor, counselor and friend—all with the use their limited capabilities and resources hope of helping troubled young people find to fill this void. Paz y Justicia staff wear strength, knowledge and hope.

Endnotes 1 UNAIDS, 2008 Report on the Global AIDS Epidemic, Annex, .p 230.

Washington Office on Latin America October 2008 41 The work of Equipo Nahual illustrates the principle that effective gang prevention programs recognize young people’s need for identity and belonging. These programs present youth with opportunities to develop individual identities through healthy and constructive means. The program described below is unusual (and in some circles controversial) in applying this approach in working with active gang members and helping them develop in ways that will encourage them to lead a calmer, gang-free life. This is important work that requires building trust with a particularly challenging set of young people. It is often more difficult because program staff are frequently viewed with distrust themselves by some police and government officials, and by community members who believe that gang-involved youth cannot be rehabilitated. Illustrating another key principle of effective programs, Equipo Nahual staff seek to develop strong and positive community relations, despite these difficulties.

EQUIPO NAHUAL El Salvador

n the early 1990s, Timothy Bernard levels of unemployment, weakened family McConville, a Scottish Catholic structures, and a variety of social problems Ipastor and psychologist working in in the community. Youth gang violence has the San Salvador suburb of Soyapango, been a serious problem in Soyapango for a Equipo Nahual El Salvador’s most densely populated number of years. municipality, became deeply concerned structured a program about rising levels of youth violence and that places emphasis the prevalence of gangs in the municipality. Programs While some local organizations were on the discovery and working with at-risk groups including youth The word “nahual” comes from an cultivation of personal and drug users, McConville was concerned ancient indigenous belief system; it refers to a shadow or protective spirit identity. They believe the that service providers were unwilling to, or uninterested in, working with active gang that watches over an individual during process of distinguishing members. In 2004, McConville and two his or her lifetime. The founders of personal identity from Salvadoran psychologists, José Roberto Equipo Nahual see their work with gang members in this light, as helping the identity of the gang Escobar and Wilson Alvarado Alemán, created Equipo Nahual to fill this void. to develop and protect the individual. is a critical component Equipo Nahual’s approach to working of any intervention The organization’s current annual operating with gang-involved youth is rooted in expenses are in the range of $30,000 to the work of renowned psychologist Carl strategy. $35,000. Its primary funder, the Catholic Jung, a pioneer of analytical psychology. Agency for Overseas Development, an arm Building on Jung’s principles of self- of the Catholic Church of England, provides realization and individuation, the a $20,000 grant, leaving Equipo Nahual in founders of Equipo Nahual structured a very precarious financial situation. In the a program that places emphasis on the near future, Equipo Nahual will focus on discovery and cultivation of personal securing new sources of funding to ensure identity. They believe the process of the continuation of its work. distinguishing personal identity from the identity of the gang is a critical component of any intervention strategy. Community Context Equipo Nahual does not run traditional prevention programs which reach out Soyapango is a large San Salvador suburb broadly to all youth. Rather, they have with a population that is largely poor or chosen to focus on intervention work working class. Young people face high with active gang members.

42 Daring To Care: Community-Based Responses to Youth Gang Violence Since its inception, Equipo Nahual has Street Outreach added staff and now includes five part-time Another major component of Equipo “social promoters,” or outreach workers, Nahual’s work is continual outreach to who are in regular communication with local, at-risk youth. A core part of the local youth. The organization regularly organization’s work includes daily walks maintains five programs: Harm Reduction, through the streets of the community, Street Outreach, Human Development, during which staff seek out local youth who Group Therapeutics and Circles of may be in need of the kinds of services and Reconciliation. programs offered by the organization. This work has to be done with extreme care and Harm Reduction sensitivity to neighborhood dynamics so The aim of these The Harm Reduction program is explicitly as to not put the youth in danger by being workshops is to provide seen with staff of Equipo Nahual and thus directed at active gang members and has youth with the necessary two components. The first is jornadas perceived as disloyal to the gang. deportivas, or athletic tournaments, space to analyze their in which youth come together to play Human Development own thoughts and soccer, basketball or other group sports. The Human Development series is a emotions, through These are held on Sundays and are the collection of workshops designed to help most well-attended of any Equipo Nahual foster personal growth and understanding. dialogue and interaction program, with 100-150 participants each The workshops consist of a series of on a more intimate and week. The jornadas are designed as a informal talks or charlas led by a member of individual level. positive alternative activity to typical the Equipo Nahual staff. The aim of each gang behavior. These activities are often talk is to present a social issue (such as an entry point to participation in Equipo alcohol, drugs, human sexuality, violence, Nahual’s more intensive, psychological masculinity) and allow the participants development activities. to engage in an open discussion about the issue. Real-life scenarios and situations are In response to the need expressed used to encourage individual self-awareness by local youth for more skills- and critical thinking about important issues based workshops, Equipo Nahual that can have serious impact on the lives of developed the second component to these young people. its harm reduction program, vocational workshops. Vocational workshops offer Each clika, or sub-group of a larger participants the opportunity to learn gang, that participates in the Human job skills and better their chances of Development program receives a separate relative financial stability through workshop presentation. As with the steady employment. This program is jornadas deportivas, Equipo Nahual staff very popular with local youth who is sensitive to community dynamics when have expressed a desire for more skills- engaging in outreach to local youth, based workshops. Unfortunately, due inviting them to participate in these to financial limitations at this moment, workshops. In order to avoid unnecessary Equipo Nahual operates only a t-shirt friction between participants and ensure silk-screening workshop; in the future, their continued participation, members of its staffers hope to offer workshops on differing gangs are never mixed at this early baking and other skills. Because start-up stage in the rehabilitation process. costs for these workshops are significant, it is very difficult for a small, low-budget The aim of these workshops is to provide service provider like Equipo Nahual to youth with the necessary space to analyze initiate these kinds of activities. A top their own thoughts and emotions, through priority for Equipo Nahual is securing dialogue and interaction on a more additional funds to expand this workshop intimate and individual level. In a safe program. environment, each gang member has a

Washington Office on Latin America October 2008 43 chance to find and express his own personal the gang, with the hope that this awareness identity, an identity apart from the gang, will contribute to better decision-making through the workshop activities. Equipo and greater sense of individual identity. Nahual believes that having the young A “Check-In” marks the beginning of person separate his or her personal identity each session, offering participants a space from that of the gang is a critical step in to share their ups and downs of the past rehabilitation. week, a chance to blow off steam or simply share what’s on their mind. Then the Circles of Reconciliation group begins a meditation session led by the psychologist in charge. The aim of Circles of Reconciliation are intended Recognizing the pivotal the meditation is to facilitate individual to generate community discussion and reflection on the participants’s past, present role that local attitudes collaboration around the problem of and future, helping them to examine can play in addressing youth gangs and how to generally improve the decisions and conditions that have community life. The goal is to establish the marginalization of contributed to their joining a gang. Mayan a permanent mechanism in which symbols, particularly the Nahual, are youth, the organization representatives of various community central to the meditation, used to invoke sees properly calibrated organizations come to discuss community feelings of individuality and self-awareness. concerns, one of which is youth gangs. The psychologist then helps each youth public outreach as a vital According to staff at Equipo Nahual, it has to reflect on the meditation session, component of its work. been challenging to organize this group. strengthening the participant’s sense of Many community organizations and other individual identity entities such as local government and religious groups are reluctant to be involved with any project dealing with active gang Collaborative Strategies members. Overcoming the stigma attached to working with gangs, while also educating Equipo Nahual sees its work not in the public about why young people join isolation from other actors in the gangs and how communities can prevent community, but in coordination with gang violence, are two challenging but them. The organization works to maintain necessary goals. While it is still in its initial good relations with community groups stages, most sectors of the community have and people, placing a premium on staying expressed interest in participating in this in tune with local needs and sentiments. community council, and Equipo Nahual The circles of reconciliation mentioned continues to work toward its realization. in the program section are an aspect of this commitment, intended to foster Group Therapeutics information sharing and strengthen collaboration among community groups. Group Therapeutics is the most intensive component of Equipo Nahual’s As Equipo Nahual realized the pivotal intervention program. Participation in this role that local attitudes can play in program comes only after the individuals addressing the marginalization of youth, in a clika have established significant the organization decided to conduct a trust with the staff at Equipo Nahual, community-wide survey in the Soyapango something which takes a great deal of time area to gain a better understanding of and commitment on the part of the youth. how people perceive youth and gang Once a clika feels comfortable with the issues in the context of the community’s staff, it may begin group therapy sessions, needs. Equipo Nahual believes that media held once a week with one of the two staff accounts of the youth gang problem in psychologists. Soyapango are dangerously distorted, and so the organization sees properly calibrated These one- to two-hour sessions are used to public outreach as a vital component of explore how the participants came to join its work. The organization sponsored its

44 Daring To Care: Community-Based Responses to Youth Gang Violence inaugural Community Forum in December 2007, uniting representatives of the local police, the mayor’s office, community task forces, and partner organizations. The aim of the forum was to increase public awareness and cooperation around the youth violence issue. Equipo Nahual initiated the community-wide survey in Soyapango in late 2007 and intends to present the survey findings at a second Community Forum in 2008. Equipo Nahual hopes that efforts such as the survey and Community Forums will lead to greater awareness about the phenomenon of youth gangs and increased willingness to work with at-risk and gang-involved youth.

Cooperation from religious organizations,

specifically the Catholic and Episcopal l E qu ipo N ahua churches, has been critical to Equipo A group of young people alongside Nahual’s work in Soyapango. In early 2008, Equipo Nahual staff celebrate a win Equipo Nahual began a series of meetings of gang violence in all Central America; in one of Equipo Nahual’s jornadas deportivas. with a network of Christian churches in the need for prevention, intervention the municipality of Ilopango to explore and rehabilitation services is great. possibilities for collaboration on work Unfortunately, resources are very limited, with both active gang members and at-risk particularly for those organizations that youth. Equipo Nahual also plans to reach choose to work with active gang members. out to the mayor’s office in the nearby town of Ilopango and other local institutions as it If the organization is able to obtain develops its work in the area. additional funding, Equipo Nahual hopes to use its program as a model for gang violence In addition to its work with community prevention in other parts of the country. organizations, churches, and local In addition to the work in Soyapango, governments, Equipo Nahual—in a move the organization has also identified the unusual for a youth service organization— neighboring municipality of Ilopango as also does outreach with local gang-involved its next proposed work area. Ilopango is youth to explain the organization and what also extremely poor and violent and has it does. Equipo Nahual recognizes that it high levels of gang activity. This expansion must be sensitive to community dynamics depends on securing additional funding. when it engages in this kind of outreach, which makes this work particularly The fear of gangs and the stigma associated delicate and challenging. But because of with those who reach out to them are its seriousness and the attention it spends significant obstacles for Equipo Nahual. on outreach, the organization is accepted Because the organization is dedicated to by local gang-involved youth and is able to intervention and rehabilitation, rather work with them. than broader prevention efforts, their work implies a level of proximity to gangs that makes many people uncomfortable Impact and Limitations working with the group. This perception is something the organization hopes to One of the most debilitating limitations on change in the future through education Equipo Nahual’s work is the lack of funding. and outreach around the successes of their El Salvador has one of the highest levels rehabilitation strategies.

Washington Office on Latin America October 2008 45 In the eyes of Director Wilson Aleman, government’s mano dura policies and reversing the social stigma that the tense relations these policies have accompanies being a gang-involved engendered between police and the youth youth is critical to the youth’s successful with whom Equipo Nahual works. In one rehabilitation. In one instance, a journalist instance, several members of the Equipo visiting Equipo Nahual was interviewing Nahual staff were detained by police while Aleman and several youth when Aleman working with gang members and themselves was called away to take a telephone charged with “Illicit Association”. While call. While in the other room, Aleman the charges were dropped the same day, the overhead the journalist and the young experience made Equipo Nahual acutely One young man said men as they continued the interview. The aware of the troublesome combination journalist asked one of the youth, “What’s of fear and power encapsulated by police of Equipo Nahual, “the changed since Equipo Nahual came here forces and the kinds of outcomes such a most important thing to your neighborhood to work with you?” combination has and may again produce. One of the young men responded, “Well, that’s changed for us there haven’t been as many killings because is the fact we have we’ve been here doing the activities with Conclusion someone who sees them. But the most important thing that’s Equipo Nahual continues to work under changed for us is the fact we have someone us as human beings strenuous and challenging conditions. They who sees us as human beings now. Everyone are fueled not only by the great need they see now. Everyone else else looks at us like we’re animals in the for their work but also by the encouragement looks at us like we’re circus.” Aleman says hearing statements and impact that is revealed in moments such like this are the most important feedback as the one illustrated above. While Equipo animals in the circus.” possible. “The ultimate reward is knowing Nahual hopes to one day replicate its work that they [the youth] are grateful for the across El Salvador extending its presence little that we do.” and message to every community in need of its services, there exist a great number of According to Equipo Nahual, another great intermediary steps on the way. For now, the challenge to their work are the Salvadoran focus is on staying afloat.

46 Daring To Care: Community-Based Responses to Youth Gang Violence Conclusion WOLA Staff Joy Olson Executive Director forms of collaboration on the common hile many of the programs Geoff Thale profiled in this publication challenge of the youth gangs, prevention Program Director Wcontinue to find success in spite practices should be an important John Walsh of limited political and financial support component. FBI cooperation with Central Senior Associate for the from local and national governments, it is American governments and other forms Andes and Drug Policy ultimately the responsibility of the state to of information sharing are necessary for Gimena Sánchez Senior Associate for Colombia provide citizen security and, by extension, an effective response to criminal cross- and Haiti support for such local initiatives. In the border activities by gang members. Gang Vicki Gass United States, the Office of Juvenile Justice members involved in such transnational Senior Associate for Rights and Delinquency Prevention (OJJDP) of criminal activities are, however, a and Development the Department of Justice offers a model of minority, and thousands of other gang- Lainie Reisman Senior Associate for Gangs how national and local governments can involved or at-risk youth are better and Youth Violence reached through prevention, intervention, work together to provide both funding and Adriana Beltrán the necessary framework for collaboration and rehabilitation methods. It is vital Associate for Police Reform between various parts of the community.1 that policy makers and officials recognize and Organized Crime While such national-local cooperation exists such distinctions when designing and Maureen Meyer Associate for Mexico and in the United States, it is far less common carrying out international cooperation and Central America in Central America due to the governments’ funding programs aimed at curbing the Lori Piccolo continued emphasis on suppression over growing gang phenomenon in the United Development Director prevention and rehabilitation. States and Central America. Partnerships Roger Atwood and cooperation between gang violence Communications Director prevention programs and service Krystal Wubben Youth gangs and providers in Central America and their Finance and Operations Manager International Cooperation colleagues in the United States should be Luke Horner an important part of the effort to build Development Associate As the United States, Mexico and Central stronger, community-based youth violence Joel Fyke Program Officer for Security American countries consider various prevention programs in this hemisphere. and Guatemala Lilia López Program Officer for Cuba and Gangs Kristina DeMain Intern Coordinator and Program Assistant for Mexico and Communications Rachel Robb Program Assistant for the Andes, Colombia and Drug Policy Ashley Morse Program Assistant for Central America, Cuba, Gangs and Rights and Development George Withers Senior Fellow Coletta Youngers Senior Fellow Rachel Neild Senior Fellow Connie McGuire Fellow Laurie Freeman Fellow Endnotes 1 Office of Juvenile Justice and Delinquency Prevention, “Strategic Planning Tool,” http://www.iir.com/nygc/tool/.

Washington Office on Latin America October 2008 47 About WOLA The Washington Office on Latin America (WOLA) is a nonprofit policy, research, and advocacy organization working to advance democracy, human rights, and social justice in Latin America and the Caribbean. Founded in 1974, WOLA plays a leading role in Washington policy debates about Latin America. WOLA facilitates dialogue between governmental and non-governmental actors, monitors the impact of policies and programs of governments and international organizations, and promotes alternatives through reporting, education, training, and advocacy.

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ISBN: 0-929513-82-7 This publication was made possible with the generous support of the W.K. Kellogg and Ford Foundations. Thanks also go to Geoff Thale and Roger Atwood for their editing and to Lilia López, Ashley Morse, and Elsa Falkenburger for their research and writing.

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