Professional Documents
Culture Documents
This document was prepared by the Institute for Law and Justice, Inc., and the Center for the
Community Interest, supported by grant number 95-DD-BX-K013, awarded by the Executive Of
fice for Weed and Seed, U.S. Department of Justice. The opinions, findings, and conclusions or
recommendations expressed in this document are those of the authors and do not necessarily repre
sent the official position or policies of the U.S. Department of Justice.
ii
Citizen Action
Prepared by
Institute for Law and Justice Center for the Community Interest
Alexandria, Virginia Washington, DC
iii
Foreword
Since 1991, nearly 120 jurisdictions have received grants through Operation Weed and
Seed of the U.S. Department of Justice to combat crime and disorder in high-crime neigh
borhoods. These communities are “weeding out” violent crime, drug dealers, and gang ac
tivity; using community policing approaches to further reduce disorder and engage citizens in
fighting and preventing crime; and “seeding” the community through prevention and inter
vention programs, economic revitalization, and neighborhood restoration.
Neighborhood by neighborhood, we are seeing success—not because there are easy an
swers, or because of any “one size fits all” program, but because of the resourcefulness and
tireless commitment of citizens, community policing officers, and others on the front line.
Only with strong support from neighborhood residents and community organizations—and
an equally strong commitment by U.S. Attorneys, law enforcement, local prosecutors, and
others in the criminal justice system—can we begin to make a difference.
It is to these individuals that this book is dedicated, and it is their collective wisdom that the
book seeks to represent and share. Each chapter offers practical tactics that have been
used successfully, in Weed and Seed neighborhoods and in other communities, to address
very specific problems. These problems—drug markets, graffiti, trespassing, prostitution,
gangs—don’t always involve felony crimes, but they all have a profound effect on the quality
of community life.
Finally, we see this book as a living document. We hope not only that you will learn some
thing useful from the experiences of these communities—new tactics, new contacts, new
ways of thinking about old problems—but also that you will tell us more about your own
experiences. In turn, we will make every effort to update the information presented here by
including your ideas in our training workshops, publications, and Internet website. We are
convinced this type of continuing dialogue will go a long way toward reducing crime and
making our neighborhoods better places to live.
Stephen Rickman
Director
Executive Office for Weed and Seed
iv
Acknowledgements
This guidebook was possible only because of the dedicated people who have been working
so hard to improve the quality of community life in Weed and Seed and other neighbor
hoods throughout the country. We hope we have represented their efforts faithfully. We
are also especially grateful for the direction and support of Stephen Rickman, Director, Ex
ecutive Office for Weed and Seed.
Working as partners, the staff of the Institute for Law and Justice (ILJ) and the Center for
the Community Interest, a project of the American Alliance for Rights and Responsibilities,
have put forth a tremendous effort on this project. Staff authors for the Institute for Law
and Justice were Edward Connors, Neal Miller, and Barbara Webster; and for the Center
for the Community Interest, Roger Conner, Kevin Coy, Chris Dwyer, Dennis Saffran, Brian
Stettin, and Rob Teir. We also wish to thank ILJ research associates Deborah Haley and
Rachana Pandey, editorial consultant Peter Ohlhausen, administrative assistant Joan Peter
schmidt, student intern Renee Pompei, and consultant Ken Finlayson.
Institute for Law and Justice Center for the Community Interest
1018 Duke St. 919 18th St., N.W., Suite 800
Alexandria, VA 22314 Washington, DC 20036
Phone: 703-684-5300 Phone: 202-785-7844
Fax: 703-739-5533 Fax: 202-785-4370
Internet: http://www.ilj.org Internet: http://www.communityinterest.org
v
Contents
vi
INTRODUCTION
Chapter 1
Introduction
1
OPEN-AIR DRUG MARKETS
Chapter 2
2
OPEN-AIR DRUG MARKETS
late those involved from arrest and punish ¤ Who? Do you know who the dealers
ment. At the top of the operation is someone are? The distributors? The runners
with the capital and connections to maintain a and lookouts? The suppliers? The
large and steady supply of drugs. Destined customers? Enablers such as busi
for the streets, the drugs are repackaged into nesses or property owners? Where
small, discrete containers to be sold by the do they all live? Who are the police
“hit.” These packets are bundled and deliv officers assigned to the area? Their
ered to distributors, mid-level assistants who immediate supervisors?
hand out a few packets at a time to “run- ¤ What? What drugs are being sold?
ners”—the people you see actually selling the What tactics have the dealers used to
drugs and collecting the cash. Often, “jug conduct their business and protect
glers” collect the cash and direct the customer their turf? To attract customers? To
to a nearby runner holding the drugs. Typi intimidate the community? To recruit
cally, young adolescents are posted as look workers? To maintain a steady supply
outs. They use cryptic voice and hand signals of drugs? To evade law enforcement?
to warn of approaching police. What strategies have already been
tried against them by the police and
Location is especially important for an open
the community? What worked and
air drug market’s ability to thrive. Good retail
what failed?
space for a drug dealer means an area that
¤ Where? What is it about the drug
has legitimate cover for foot and auto traffic
market’s location that affects viability?
while at the same time exuding a sense of
Where are the entrance ways and es
abandonment by community residents. Also,
cape routes? Where are the legitimate
in order to avoid the police, dealers pick
enterprises that provide cover?
spots with easy access for customers and a
Where are the drugs repackaged and
large number of quick escape routes. An
bundled?
other consideration for dealers is cheap labor,
¤ When? Most flagrant drug dealing
so they look for large pools of poorly super
takes place on Thursday, Friday and
vised kids desperate for money and status. A
Saturday nights. Is this true at your
thoroughly littered street corner with run
targeted market? When does dealing
down liquor stores and carry-out joints,
go on? When is it busiest?
poorly lit alleys, and a low-income housing
¤ Why? Why is there chronic drug
complex nearby is an ideal location to peddle
dealing at this place? What do you
drugs.
believe are the primary reasons that
this particular drug market has been
Taking Inventory able to flourish?
Now, with these general points in mind, as Don’t expect to have the answers to all of
sess your specific problem. In regard to the these questions. You can be assured that if
particular drug market you’ve chosen to you ask a few neighborhood residents and
eliminate, answer as many of the following their children these questions—even if the an
questions as you can: swers are incomplete—you will have enough
3
OPEN-AIR DRUG MARKETS
4
OPEN-AIR DRUG MARKETS
activity and report what they see to the services outdoors where chronic drug
police. By walking in groups and dealing has been going on.
wearing bright “uniforms” (a common ¤ Scarecrows. A simple tactic that
hat or T-shirt), and by equipping greatly increases the insecurity felt by
themselves with walkie-talkies, still drug buyers is to post warnings that
and video cameras, notepads, and they are being watched. Among the
whistles, patrol members are scaring “scarecrows” that communities have
away drug customers and providing placed at drug market entrances are
the police with detailed information to seized cars, banners, stenciled mes
use against dealers. Police typically sages that read “We Spy: Don’t Buy
show renewed interest and increased Drugs Here,” and posters offering
presence in locations where citizen cash rewards for information leading
patrols operate. to a drug-related arrest.
¤ Marches and Vigils. In many
communities, citizen patrols have Strategy 2. Deny Drug Dealers
evolved into full-blown demonstra Access to Marketing Space
tions. Large groups, often including Open-air drug markets depend upon location
children and senior citizens, are staging stability to maintain their customer base. If a
repeated marches and vigils in the sales operation is forced to move, it cannot
heart of some of the country’s most easily advertise its new location, and market
notorious drug markets during peak efficiency declines. The more frequently the
business hours. Their purpose is not market is forced to move, the less likely it is
to observe but to intimidate drug deal to maintain regular customers and stay in
ers. Armed with bullhorns and anti business. To disrupt the normal interaction of
drug slogans, and usually a police es dealers and their customers and make the
cort, the drug fighters park themselves physical environment less hospitable to drug
directly in front of dealers and stare dealing, concentrate on (1) altering and
them down with loud and droning monitoring entrance and escape routes used
chants. by customers and dealers, (2) stopping drug
¤ Block Barbecues. In Chicago, citi market “enablers,” and (3) advocating legisla
zens have pushed drug dealers from tion to outlaw the mechanics of open-air drug
their preferred selling locations during sales.
busy weekend hours by peddling hot ¤ Better Lighting. Drug dealers and
dogs and hamburgers there instead. In customers react to bright light the
many cases, the barbecues have same way cockroaches do—they
grown into popular neighborhood scatter. Property owners, city offi
events. cials, and community leaders who
¤ Street Church Services. Minis “adopt” an area should make ade
ters in Alexandria, Virginia, have had quate lighting a top priority. Quickly
similar success in disrupting drug mar repairing or replacing lights that have
kets by holding Saturday evening been broken or have had their wiring
5
OPEN-AIR DRUG MARKETS
6
OPEN-AIR DRUG MARKETS
7
OPEN-AIR DRUG MARKETS
police, or others may want to take of friendly contact between police and
against the drug market. the community, and their mobility al
¤ Well-Publicized Drug Tip Hot lows them to follow migrating drug
Lines. Tip lines make it quick and markets.
easy for citizens to inform the police of ¤ Court Watches. It is not uncom
suspicious activity, and they need not mon for people arrested on drug
be huge statewide or citywide phone related charges to be released on
banks to be effective. In fact, some bond within hours. In reaction, many
times a more narrowly focused tip drug-fighting groups now follow ar-
line—to a narcotics unit assigned to a rested drug offenders to court for their
specific segment of the city—elicits a arraignment. They crowd the court
better response from the police. In room to be sure that the judge knows
any case, the tip line needs to be well how law-abiding community members
publicized in areas plagued by drug feel about the defendant’s behavior.
dealing. Posters and discussions at Nor are the groups shy about sharing
community meetings can help spread their reaction. (For more information
the word. on working with courts and prosecu
¤ Postcard Warnings to Vehicle tors, see Chapter 10.)
Owners. Postcards can be mailed to ¤ Enforcing Driver’s License
the owners of cars seen cruising in the Revocation. A federal “use it and
vicinity of open-air drug markets. lose it” law requires that anyone con-
Through the local division of motor victed of a drug-related offense must
vehicles, police can trace the license lose their driving privileges for at least
plate numbers collected on citizen drug six months.
activity logs and send notices to the ¤ Mandatory Drug Testing and
vehicle owners “warning” them that to Treatment. Any suspect in the
frequent the area at certain hours is a criminal justice system can be tested
dangerous health risk. for drugs. Since drug use is implicated
¤ Driver’s License Checkpoints. in a very substantial percentage of all
Another effective police tactic is the crimes, more offenders should be
implementation of regular driver’s li- tested. Drug testing is often imposed
cense checkpoints, similar to sobriety as a condition of probation and parole.
checkpoints, at drug market entrances To be effective it must include close
to discourage “frivolous” traffic in the supervision and serious but graduated
area. penalties for failed tests. Attendance
¤ Police Command Posts. For by drug abusers at treatment pro
deeply entrenched drug markets, po grams, Narcotics Anonymous meet
lice should consider setting up and ings, and life skills classes, at their own
staffing a semi-permanent trailer as a expense, can be a cost-effective initial
command post in the market’s center. sentence that carries the possibility of
Command posts can serve as a point rehabilitation.
8
OPEN-AIR DRUG MARKETS
9
OPEN-AIR DRUG MARKETS
10
OPEN-AIR DRUG MARKETS
11
CRIME AND DRUG DEALING IN HOUSING DEVELOPMENTS
Chapter 3
Housing Developments
12
CRIME AND DRUG DEALING IN HOUSING DEVELOPMENTS
lecting families to avoid higher vacancies and spire a lower tolerance for crime by
reduced revenues from rent. In addition, changing policies and procedures—
problem families typically have more personal especially tenant screening and lease
issues, including domestic violence and drug enforcement policies—through a part
and alcohol abuse, which result in increased nership with the majority of residents
damage to the apartments. As costs increase who want change.
and revenues decrease, maintenance and up
keep are curtailed. Benchmarks for Managing Multi-
Family Housing
In the beginning, the police attempt to enforce
You may have heard many times that manag
the law, but before long there are fewer and
ing multi-family housing, especially lower
fewer residents willing to cooperate with po
income developments, is complex and techni
lice or report lease violations. Even when law
cal, with enormous amounts of regulations
breakers are arrested, they are typically back
governing the management process. Multi
in the community within days or even hours.
family housing management is really financial
As tolerance increases and support de
management, and standard benchmarks are
creases, the police actions have little long
used. By learning these benchmarks, you will
term effect. Faced with a lack of results, they
be in a much better position to negotiate for
place their crime prevention priorities in other
change.
sections of the city. This cycle escalates until
it spills over into the surrounding communities, ¤ Income must exceed expenses. A
causing serious problems there as well. manager can enhance income by re
ducing expenses, including expendi
There are several myths about crime in multi
tures for maintenance and materials.
family developments. Before designing your
The U.S. Department of Housing and
strategy, consider these facts.
Urban Development (HUD) monitors
¤ Much of the crime that occurs in multi all subsidized multi-family units, and
family communities is caused by per HUD must also regulate all properties
petrators who reside outside the rental to see that they are maintained. How
community. These outsiders are at ever, if income exceeds expenses,
tracted by residents’ high tolerance for HUD may not monitor the physical
crime and the demand for drugs. decline.
¤ Most residents of subsidized rental ¤ Most financial assumptions on the op
housing are decent, law-abiding fami erations of multi-family housing assume
lies who are just as upset about the a 5 percent vacancy rate. If vacancies
problem as the surrounding commu are any higher, the owner is probably
nity. Given the right circumstances, losing money.
they can become close allies in solving ¤ Rent collection should be current.
the problem. Any delinquencies over 60 days are a
¤ Residents, not management, define the serious problem and indicate poor rent
level of crime that will be tolerated in collection procedures.
their community. Management can in
13
CRIME AND DRUG DEALING IN HOUSING DEVELOPMENTS
Taking Inventory
The strategies discussed in this section follow:
Measurable improvements can be gained
when certain core problems that contribute to ¤ Establish positive relationships with the
drug problems in multi-family housing devel owner.
opments are addressed. As you begin to de ¤ Get results when negotiations fail.
velop your strategies, consider which of these ¤ Establish relationships with the resi
core problems characterize the multi-family dents.
housing development you are targeting: ¤ Develop a plan to change physical
conditions.
¤ The housing development’s physical
¤ Encourage changes in management.
design supports drug activity.
¤ Work with the police on crime pre
¤ Management tolerates a high level of
vention strategies.
problem behavior rather than strictly
enforcing the lease.
¤ Police do not provide the intensive
problem-solving required to maintain
14
CRIME AND DRUG DEALING IN HOUSING DEVELOPMENTS
15
CRIME AND DRUG DEALING IN HOUSING DEVELOPMENTS
16
CRIME AND DRUG DEALING IN HOUSING DEVELOPMENTS
With a positive relationship with the owner tion through Urban Design. Changes in
and a connection to the residents, you are physical design can be very technical, and
now ready for Strategy 4. they are also specific to the local multi-family
housing’s construction and maintenance.
Tip: As crime increases, residents’ Once addressed, however, you will see how
fear of retaliation increases and much all of the changes are based on com
their willingness to help manage
ment decreases. If this is the case,
mon sense. Here are some suggestions that
trying too hard to involve residents will help you begin the process.
may cause further problems. Make
sure residents are aware of the of
¤ Improve Lighting. This is one of
fer to work together. Later, as the quickest, easiest, and least expen
change occurs, the residents may sive physical changes that dramatically
feel more secure and accept the of helps reduce crime. Place lights in
fer.
dark common areas, especially areas
that are known locations of drug traf
Strategy 4. Develop a Plan to ficking.
Change Physical Conditions ¤ Change the Traffic Patterns. If
Years of study and program evaluation have the housing community has entrances
concluded that there is a direct connection and exits that allow traffic to easily
between the design of a community and drive through, block multiple exits and
crime. Overcrowding, high-rise family living, change traffic patterns to make it diffi
poor lighting, easy access to the property, cult to get out of the property. (This
common areas that do not allow observation, needs to be coordinated with police,
and many other factors affect the level of fire, and emergency medical services
crime. to make sure emergency response ve
hicles can still move through quickly.)
Specific physical characteristics of the prop
¤ Place Fencing Near Vacant Ar
erty are also related to specific types of
eas. Consider fencing areas where
crimes. For example, if burglary is a prob
the property backs up to woods, open
lem, window and door security are important.
fields, and other vacant common ar
If auto theft is a major problem, then the de
eas. Avoid putting a fence around the
sign and location of parking is an issue.
entire property; this creates a prison
Open-air drug trafficking is heavily influenced
like image and does little to reduce
by road design and traffic patterns. Keep this
drug trafficking.
in mind when negotiating with the owner or
¤ Consider Decorative Fencing in
manager. Target the criminal activity that is
Common Areas. This creates pe
the worst problem and identify the physical
destrian patterns that allow better sur
problem that may be contributing to it.
veillance. People who stray from the
Crime prevention through environmental de common passageways become more
sign (CPTED) is an approach that was made conspicuous.
popular by Oscar Newman in his 1972 publi ¤ Remove Landscaping. Your ob
cation, Defensible Space: Crime Preven- jective here is to remove overgrown
17
CRIME AND DRUG DEALING IN HOUSING DEVELOPMENTS
bushes and other landscaping that ence in the business. This manual cannot
provide cover or restrict surveillance in provide enough information to allow commu
common areas. nities to successfully assist in revamping man
¤ Install Surveillance Cameras. agement systems; however, there are three
These can be monitored by elderly activities that the community can undertake to
residents and the police. improve and help management without inter
¤ Remove All Litter Daily. One indi vening inappropriately in the management
cator of a high level of tolerance for process.
crime is excessive litter. ¤ Do Background Checks on Po
¤ Remove Graffiti Daily. Removing
tential Tenants. Support the
graffiti shows who is in control of the owner or manager in obtaining police
community. (See Chapter 7 on graffiti criminal record screening of potential
removal.) tenants. Use your positive relation
¤ Secure Vacant Units. Make sure ships with the police to design an ef
vacant units are boarded and secured. fective process for screening appli
cants. Many owners who manage
These examples are relatively easy and inex
high-crime communities only check the
pensive. More expensive and complex
criminal records of the head of the
strategies can follow as the environment im
family. Encourage record checks for
proves. For example, reducing unit density,
all members of the family.
redesigning parking areas, and major reha
¤ Tighten Eligibility Requirements.
bilitation can also help reduce crime.
Work with the owner to establish strict
Tip: If the surrounding community
eligibility and screening requirements.
does not first develop a positive re If you have a relationship with the
lationship and a common goal with residents, they will support family eli
the owner but insists on physical gibility changes. (They may not sup
changes to the property, the owner
may feel the request is none of the
port changes in the lease very easily.)
community’s business. Agree on ¤ Enforce Leases and Evict Crimi
the common goal first. nals. Help link community policing
efforts to the on-site management.
Start by helping to identify the most
serious problem families and develop
Strategy 5. Encourage Changes in ing a law enforcement strategy to re
Management move them. Typically, on-site man
This is a very difficult but important strategy. agement will wait for a violation of the
The police can arrest criminals, but if the law and then begin the long, tedious
owner permits problem families to move in, job of eviction. Often, they lose those
police efforts will not solve drug and crime cases. Targeted law enforcement in
problems. Improving multi-family housing cooperation with management and
management is a process that requires experi residents sends a powerful message of
intolerance to perpetrators.
18
CRIME AND DRUG DEALING IN HOUSING DEVELOPMENTS
The strategy is very simple: get problem fami This will show patterns linking the
lies out and prevent problem families from rental housing to the overall commu
moving in. If this is done in conjunction with nity.
making physical improvements, the results will ¤ Change Traffic Patterns. Extend
be noticeable. Good families will not move the traffic pattern changes in the rental
out as quickly, crime will be reduced, the community to the larger community.
property will look better, and it will be more ¤ Address Housing Vacancies.
marketable to new families who want to live Address any issues of vacant housing
and raise their children in a crime-free envi in the surrounding community. Many
ronment. times, these units support drug activity
in the multi-family units.
Tip: Approach the owner with the ¤ Use Community Policing Ap
offer to help build relationships proaches. Work with your commu
with the local police. Your alliance
can be very helpful in negotiating
nity policing officers to identify, target,
changes. Of course, if the strate and eliminate street-level disorder
gies work, the problem will proba problems near the rental housing.
bly move into the larger commu-
nity—drug dealers will move onto
your corners—so be prepared by
using the other strategies in this
Putting It All Together
manual. When multi-family rental housing has serious
drug and crime problems, serious problems
Strategy 6. Work with the Police on can also occur in the surrounding community.
Crime Prevention Strategies Attacking the problem with the assumption
that the owner and residents are part of the
This strategy overlaps many of the others.
problem can make the situation worse.
The police can be very helpful with CPTED
Community leaders should approach the
strategies, and they can help solve occupancy
owners and residents as partners in solving
problems caused by lack of screening. How
the problem. Sometimes forming a partner
ever, they can do much more. Once a col
ship does not work, but when it does, the re
laborative partnership is established between
sults can be dramatic. When designing a
the multi-family housing project and the sur
strategy, keep these points in mind:
rounding community, the police can use
community policing strategies in the entire ¤ Approach the Owner or Man
area. ager First. Don’t blame or accuse.
Don’t try to force your solution.
Chapter 9 discusses working with the police
Rather, determine how the owner or
in greater detail. The following cooperative
manager views the problem. Specifi
activities help specifically with multi-family
cally, what is the owner’s problem? Is
housing:
it property damage? Uncollected
¤ Use Crime Mapping. Include the rent?
multi-family housing area in your ¤ Determine the Owner’s Values.
community crime mapping activities. What are the owners goals? Whether
19
CRIME AND DRUG DEALING IN HOUSING DEVELOPMENTS
increasing revenues, decreasing ex Vance, Timothy. (1994). How to Get Drug
penses, decreasing vacancies, or re Enterprises Out of Housing. New York:
pairing the property, you need to Citizens Housing and Planning Council. 323-
know. 391-9030.
¤ Establish a Goal That Serves Weisel, Deborah Lamm. (1990). Tackling
Both Your Interests and the
Drug Problems in Public Housing: A
Owner’s. Call it something like “Op
Guide for Police. Washington: Police Ex
eration Reduce.” You reduce crime,
ecutive Research Forum. 202-466-7820.
the owner reduces expenses. Make
sure there is common ground. Now Wekerly, G. R. (1995). Safe Cities. New
you are collaborating. York: Van Nostrand Reinhold. 800-842-
¤ Include Community Policing Ef 3636.
forts as Part of the Collabora
tion. Enlist the police in all of your Organizations
strategies. Have them help with U. S. Department of Housing and U
rban
screening, abandoned cars, lighting, Development (HUD)
and CPTED. HUD Drug Information and Strategy Clear
¤ Try to Include the Residents. If inghouse
you can’t do this right away, leave the P.O. Box 6424
door open. Nothing will change if Rockville, MD 20850
residents don’t demonstrate lower tol 800-578-DISC
erances for crime.
Join Together
441 Stuart St.
References
Boston, MA 02116
617-437-1500
Publications
http://www.jointogether.org
Bursik, R. J., Jr., and H. G. Grasmick. Assistance to community groups for reducing
(1993). Neighborhoods and Crime. New substance abuse and gun violence.
York: Lexington Books. 800-956-7739 or
212-702-3130. Residential Police Officer Program
Clarke, R. V. (ed). (1992). Situational Alexandria Police Department
Crime Prevention. Albany: Harrow and 2003 Mill Road
Heston. 518-456-4894. Alexandria, VA 22314
703-838-4722
Crowe, T. D. (1991). Crime Prevention
Capt. Kenneth Howard
through Environmental Design: Applications
Police officers living and working in public
of Architectural Design and Space Manage
housing neighborhoods.
ment Concepts. Stoneham, Massachusetts:
Butterworth-Heinemann. 800-366-2665.
20
CRACK HOUSES AND OTHER INDOOR DRUG MARKETS
Chapter 4
21
CRACK HOUSES AND OTHER INDOOR DRUG MARKETS
Strategies and Tactics The idea is simply to shame the drug dealers
and communicate moral outrage. The effects
If there is a crack house or shooting gallery in
are threefold. First, it lets the drug dealers
your neighborhood, there are three basic ap
know that the community will no longer pas
proaches you can take to drive it out:
sively accept the ravages of drug dealing in
¤ Anti-drug marches and vigils their neighborhood. A few of them might
¤ Drug nuisance abatement (direct legal heed the message and change their lives. If
action) nothing else, it will scare off some customers
¤ Eviction and make the dealers realize they were wrong
Of course, it is an excellent idea to proceed to assume that the neighborhood would toler
with more than one strategy simultaneously. ate a crack house. Second, the Wrice Proc
ess kindles the spirit of a community. When
Strategy 1. Anti-Drug Marches and people participate in or hear about the rallies,
Vigils they discover that as a united front, they have
One of the first persons to successfully or power and need not be paralyzed by fear.
ganize others to develop a system of anti-drug Third, it sends a wakeup call to city govern
marches and vigils was Herman Wrice, a ment, which sometimes neglects citizens who
former inner-city athletic coach from Phila are unorganized and appear apathetic. Police
delphia. After watching in horror as some of officers are inspired by the marchers in the
his star athletes got involved in drugs, Mr. same way pro athletes are inspired by the
Wrice became an anti-drug activist in the late home crowd. In city after city, amazing
1980s. The techniques he developed for changes in neighborhoods have been set in
driving drug dealers out of a neighborhood motion by ordinary people in matching T
have been replicated with success in many shirts gathering to chant outside crack houses.
cities across the country.
Tip: Be sure that the houses you
The “Wrice Process” is about the power of target for protest are indeed drug
shame. The idea is to form a local organiza locations. Some civil liberties ad
tion of fed-up, drug-hating neighbors to vocates argue that the Wrice Proc
ess is unconstitutional because it
gather in large crowds at known drug loca amounts to public punishment for
tions to vocally express the community’s dis the crime of drug dealing, without
approval. A Wrice group (often using the the accusation having been proven
name “Turn Around [their city]” and wearing in court. Courts have held to the
contrary: protesters have First
matching T-shirts and caps) will surround a Amendment rights. Targeting an
local crack house night after night, chanting innocent home, however, will back
anti-drug slogans. They work hand-in-hand fire. A group should therefore
with the police so that when police raid a drug never rally on the basis of mere
suspicion or an uncorroborated ac
location, the group is waiting outside to form cusation of drug activity.
a gauntlet for arrested dealers and users to
pass through.
22
CRACK HOUSES AND OTHER INDOOR MARKETS
Strategy 2. Drug Nuisance tenants. If the judge finds fault with the prop
Abatement erty owner for allowing the drug activity, the
The second approach involves the legal sys judge can condition the owner’s continued
tem. Many states now have “drug nuisance possession on the owner’s compliance with
abatement” statutes that declare any property security measures. In some cases where
used for drug activity to be a per se nuisance. owners have refused to properly maintain
The discussion here is necessarily general be properties found to be drug nuisances, judges
cause the specifics of the law will vary from have placed the properties in receivership,
state to state. To get a clearer picture of your appointing local nonprofit groups as receivers.
state’s law, it will be necessary to consult with The receiver takes responsibility for the evic
a local lawyer. tion of drug-dealing tenants, orders repairs
and renovations (paid for by the owner), and
Tip: As mentioned in the last chap screens prospective tenants.
ter, some local law firms will pro
vide free legal aid to homeowner A quicker legal option that can sometimes be
or community groups. Also, re
just as effective is the small-claims court ac
member that lawyers who are em
ployed by your city already work for tion. Public nuisance cases can also be
you. Set up a meeting with your brought in small-claims court, and if enough
city attorney or your prosecutor to neighbors simultaneously file suit, they can
discuss drug nuisance abatement.
make an end run around the slow and expen
sive regular court system and still threaten
Most drug nuisance abatement laws authorize enough damage that the owner will likely con
community groups or city or state lawyers to sider a settlement.
bring civil lawsuits against the owner of prop
erty that they allege is being used for drug ac Tip: In Texas and elsewhere,
tivity. At trial, the plaintiff must show by a community groups have enlisted
preponderance of the evidence (an easier the cooperation of the National
Guard on such matters as carrying
standard than criminal court) that the allega
out building demolition orders.
tion is true. This is typically accomplished by
a combination of police testimony and com
Whatever legal action you choose to take, it
munity testimony, but if community residents
is important to first inform the landlord in
are too frightened to testify, police testimony
writing of your intentions. Often, just the
will sometimes be enough (especially if police
threat of a legal battle will be enough to gain
have searched the property pursuant to a
cooperation. However, you must be prepared
search warrant).
to back up your threat.
If a plaintiff wins a drug nuisance abatement
suit, the judge has great flexibility in ordering a Strategy 3. Evictions to Fight Drug
solution to the problem. For example, the Dealing in Apartment Buildings
judge can order a building to be demolished if Drug dealing in apartment buildings presents
it is found to be a safety hazard, and can or its own unique set of issues. The best strate
der eviction proceedings against drug-dealing gies for combating crack houses are not al
23
CRACK HOUSES AND OTHER INDOOR DRUG MARKETS
ways appropriate for use in apartment build in the building). In that case, your tenants’
ings. The techniques of Herman Wrice, for association or your city or state attorney will
example, may not be well-suited because you first have to bring a drug nuisance abatement
really can’t assemble a crowd right outside suit against the landlord. If you can show in
the drug dealer’s door. court that the landlord tolerates drug dealing,
the judge should order eviction proceedings
Usually, the drug dealers in an apartment
against the dealers and/or appoint a receiver
building are legal tenants. Even if much of the
to do what the landlord should have done.
drug activity is taking place in common areas
of the building, someone’s apartment is usu In any event, keep in mind that while eviction
ally the home base of the operation. Often, of drug dealers is essential, it is a very poor
multiple tenants are members of the drug en strategy to make that the only weapon in your
terprise, and different apartments fulfill differ arsenal. Be proactive, not reactive. In other
ent functions. (For example, one apartment is words, rather than waiting for drug dealers to
for cooking drugs, another is a lookout post, appear, your tenant association should be
and another is for sales.) working closely with the landlord and the po
lice to implement building policies that will
You probably are not alone if drug activity is
discourage dealers from ever setting up shop
worrying you. Reach out to your neighbors
there at all. Here are a few basic examples:
and work together.
¤ Lease Language. Put language
Here’s a simple rule of thumb: If tenants are
into the lease of every tenant that
dealing drugs, they must be evicted. Your
clearly states that buying or selling
first task as a tenant activist is to figure out
drugs in the building or using the
how you’re going to get those dealers
apartment to support an indoor drug
evicted. That process must begin by meeting
enterprise in any manner is an express
with your landlord, presenting your evidence
violation of the lease. Screen new
of drug dealing, and asking the landlord to
tenants appropriately. If your building
bring a summary eviction proceeding.
is public housing, the lease provision
If a drug enterprise is operating from multiple should be complemented by a “one
apartments in your building, there is little value strike and you’re out” policy against
in evicting one dealer at a time. The opera anyone who participates in the drug
tion will easily recover from the loss of one trade. “One strike” means that the
apartment. It is much better to work with po housing authority will move swiftly to
lice and wait until you can identify every evict undesirable tenants. (The policy
apartment involved. Then, your landlord can is discussed in greater detail in Chap
uproot the entire operation at once by moving ter 5 on trespass laws.)
to evict all the dealers simultaneously. ¤ Tenants’ Association. Maintain a
You may find that your landlord is not inter well-organized tenants’ association.
ested in getting rid of drug dealers and refuses When tenants feel connected to the
to pursue evictions (indeed, the landlord’s in building and their fellow tenants, they
difference may be why you have drug dealers
24
CRACK HOUSES AND OTHER INDOOR MARKETS
are much less likely to tolerate drug pate in marches located in the other two
dealing. neighborhoods.
¤ Locks. Always keep a secure lock The assembled group, in their anti-drug uni
on the doors of the building. If a lock forms, marched straight into three of the city’s
is broken, have it replaced the next most notorious open air drug markets chant
day. Give a key to every police offi ing, “Up with hope! Down with dope!”
cer who covers your beat, so that Mounted police, including Police Chief Mi
dealers know that the police can enter chael Snowden, led the way up Cincinnati’s
the building without warning. Auburn Avenue. The drug fighters squared
¤ Monitor Vacant Units. If there are off against dealers at two corners and one
vacant units in your building, monitor crack house, each struggle lasting nearly two
them carefully for drug activity. Do hours. The marchers chanted, “We’re fired
not seal them off—that will only deny up! We ain’t takin’ no more!” At first the
management access to the unit after drug dealers made fun of the marchers, mim
dealers break in through the walls, icking their chants and laughing at them. As
ceilings, or floors of adjoining units. the sea of yellow shirts and white hard hats
¤ Keep It Clean. Do not let garbage continued to chant, “Drug dealer, drug dealer,
or debris pile up in the building’s alleys you can’t hide/We charge you with geno
and yards. The sight of a building in cide,” some of the dealers began to get angry.
disrepair will attract dealers. Keep the They cursed the marchers. At one point,
entrance, hallways, vestibule and alleys someone threw eggs at the marchers. But the
well-lit at all times. marchers just kept on chanting. Eventually
the drug dealers, having lost their customers
for the night, wandered off.
Putting It All Together
The city of Cincinnati brought Herman Wrice Every time a drug dealer retreated, a joyous
in to train citizens in his anti-drug technique. roar went up among the crowd of marchers.
After a two-day training session, more than At least for that night, the community had
200 people donned yellow shirts and white won. Although that victory was still tempo
hard hats for the group’s kickoff march in rary, there had been a permanent change
September 1996. The volunteers included among the marchers. They knew that people
women and men, blacks and whites, college power could work, that if the community
students, families with children, and senior worked together they could get rid of the
citizens. Up to 30 police officers also joined dealers. That night one woman who lost a
in the march. The officers provided an added son to drug abuse said that for the first time
measure of security. In addition, the police she was not afraid of the drug dealers.
provided information about the most active
drug markets and crack houses. The plan
was to focus on active drug corners or crack
houses within three targeted communities.
Residents in these communities would partici
25
CRACK HOUSES AND OTHER INDOOR DRUG MARKETS
26
CRACK HOUSES AND OTHER INDOOR MARKETS
212-989-0909
Community organizing and collaborative
problem solving.
27
TRESPASS
Chapter 5
Trespass
28
TRESPASS
that an arrest followed by a search might un borhood. When a neighborhood is patrolled
cover drugs or guns, leading to a more seri (and street signs are prominently displayed to
ous charge than mere trespassing. As a re publicize the fact), criminals can never be sure
sult, police officers, residents, and property that they operate out of sight.
owners frequently blame each other, feeling
angry and powerless in the face of a persis Tip: Remember, a trespasser
tent problem. doesn’t have to be seen breaking
another law to be asked to leave.
Nonetheless, trespassing is ultimately like A trespasser who does not live in
other types of disorder in residential commu the apartment complex does not
belong on the property.
nities: it exists only to the degree that it is tol
erated by the people who live with it. Drug
Neighborhood patrols are particularly effec
dealers, pimps, and thieves choose a particu
tive against trespassers. Trespassers some
lar place to hang out because they can see
times lurk in darkness and shadows. If they
that there is not an effective partnership
know that residents are looking out for them,
among residents, owners, and police.
and that they might be observed without their
knowledge so that police can be called in to
catch them by surprise, they won’t be com
Strategies and Tactics fortable near your building and will look for
This chapter discusses three strategies you some other place to loiter.
can use:
Neighborhood patrols should target the times
¤ Deny trespassers access to your and places in which there is the greatest
building. problem. As in the case of drug dealing, usu
¤ Work with police. ally trespassers are most visible during week
¤ Deal with residents who shelter tres end nights. Make sure to include as many
passers. neighbors as possible by providing good no
tice of when and where patrols will take
Strategy 1. Deny Trespassers place. Some communities set up a “telephone
Access tree” so people can call each other efficiently.
There are two primary methods of denying Others distribute or post in public places an
trespassers easy access to places where they nouncements of the patrols. Those partici
don’t belong: neighborhood patrols and citi pating in patrols should have some identifying
zens’ arrest. These actions should immedi uniform, such as the same color hats or T
ately improve the situation. Chapter 3 on shirts. Generally, it is advisable to be rea
drug dealing in housing developments dis sonably polite to trespassers you encounter.
cusses physical security procedures that can Your goal is to let the trespassers know they
also limit access of unwanted guests. are not welcome. If you fear that the tres
Neighborhood Patrols. Many community passers are potentially violent, ask a security
groups conduct neighborhood patrols. These guard or local police officer to accompany
are programs in which citizens organize their your group on initial patrols.
own patrols to keep their eyes on the neigh
29
TRESPASS
Neighborhood groups should also work with Strategy 2. Work with Police
the property management to get “No Tres A campaign against trespass should start with
passing” signs prominently posted. This de a meeting of concerned residents, property
nies the trespassers an opportunity to say they owners, and officials of your local police pre
were not aware they were trespassing. cinct. Relations between police and your
Citizens’ Arrest. If your building has pri community may be strained. Perhaps you
vate security, check the law of your state on have tried to get police help against trespass
“citizens’ arrest.”1 Security personnel have ers in the past and felt that the police didn’t
the same right to make arrests as all private care. Nevertheless, you must at least try to
persons. Some states allow a citizen to arrest make a fresh start.
(that is, detain someone against his or her will
until police arrive) for misdemeanors com Tip: Remember, just because the
police have not enforced trespass
mitted in the citizen’s presence. This right can laws yet, it doesn’t mean that they
be especially useful in dealing with trespass won’t or they can’t. Sometimes
ers. A security guard patrolling the grounds they just need to be reminded that
can hold a trespasser for police, rather than residents want the law enforced.
30
TRESPASS
selves may receive copies of the no developments; however, the local
tices. This works in situations where public housing authority may need to
the same person keeps returning to the enact a specific trespass resolution to
property after repeated warnings. allow for enforcement of the law.
Armed with this information, the offi ¤ Get Police to Issue a Warning. It
cer can make an arrest. is easier to persuade an officer to tell
¤ Court Orders. In some jurisdictions, someone to leave and issue a warning
procedures have been created that al than to make a formal arrest. Even if
low a court order to be obtained that the trespassers step off the premises
directs the person to stay away. It is just as police arrive on the scene, it
not enough to obtain such an order, should be standard practice for the of
however; residents can help by making ficer to have the owner or owner’s
sure that officers have copies of the agent warn the trespassers, in the offi-
orders or by directing the officer to a cer’s presence, that they are not wel
resident manager’s office where cop come and should never return. The
ies are kept. Low-level drug dealers manager, owners, or residents should
and prostitutes typically get probation take Polaroid pictures of this warning
instead of jail time, but the court can being given. The photos should then
place conditions on them. You can be hung in the apartment building
ask prosecutors and judges to include lobby. This procedure will send a
stay away orders as a condition for powerful message to the trespasser:
probation. Residents need to obtain the police know who you are, they
the name of the person’s probation of know you don’t belong in this building,
ficer and be prepared to call if the per and if they ever catch you there, they
son returns to the premises. will not feel any need to let you off
¤ Posting Lists of Excluded Per with another warning.
sons in Public Places. By posting ¤ Truancy Laws. If your trespassers
these lists in public places, residents appear to be school-age youth and
can play an important role in motivat they are on the premises during school
ing owners and officers to enforce the hours, call the truancy office of your
trespass laws. After a warning has local school district. Truancy officers
been issued, trespassers’ names can are not police, so they are unburdened
be put on a list that can be distributed by any need to personally witness
to residents, building management, se trespass. If you can lead them to the
curity guards, and the local police. If youth or tell them where to look, they
these previously warned individuals will probably be eager to intervene.
are seen on the property and reported Similarly, if the trespassers are on
to police, they can be arrested, even if probation or parole, you may be able
they are not trespassing at the moment to work with the probation or parole
the police arrive. These laws usually officers to get the trespassers to stay
work the same way in public housing off your property.
31
TRESPASS
32
TRESPASS
scribed activities—even once—the housing Under your new A & O policy, the landlord
authority may bring an eviction proceeding should appoint a “Trespass Control Officer”
against that tenant. If the housing authority (TCO), who will process the exclusion forms,
then shows sufficient evidence of the wrong maintain files of excluded persons, and re
doing at a hearing, the tenant will be evicted. ceive appeal requests. There should be a
place near the main entrance of the housing
The new A & O policy should provide that
project where the TCO will hang Polaroid
when a particular non-tenant is deemed by
photos of excluded persons, so that any resi
the housing manager to be unwelcome, and
dent can identify a trespasser and call the po
such non-tenant is identified as an associate of
lice.
a particular tenant, the tenant shall be warned
not to allow the non-tenant into the housing In the end, the “one strike” policy will only be
project again. If the tenant ignores the warn as effective as the landlord, housing manag
ing, he or she will be subject to eviction. ers, and police officers entrusted to implement
it. Your new A & O policy should therefore
The beauty of “one strike” is that if a tenant
set out clear criteria and procedures to guide
commits an act that the other tenants have
housing managers in banning persons from the
decided not to tolerate, it doesn’t matter if the
housing project, and procedures by which
act violated the criminal law or not. Eviction
police officers can keep track of who belongs
is a civil, not a criminal, matter, so the criminal
on the premises and who doesn’t. This policy
definition is irrelevant. This also means that
should be developed in close cooperation
the rigorous standards of a criminal trial do
with the police department and housing
not apply. For example, at the eviction hear
authority.
ing, the housing authority need only prove its
case against the tenant by a “preponderance
of the evidence” (that is, show that the tenant
is probably guilty), rather than the “proof be Putting It All Together
yond a reasonable doubt” standard that ap The 3,800 residents of public housing in
plies in criminal trials. Huntsville, Alabama, were frustrated by drug
Undoubtedly, some will find the “one strike” dealing, violence, and vandalism within their
policy too drastic. They will argue that an in communities. Most of the law violators were
nocent grandmother might be evicted for her not residents in the housing complexes. Resi
inability to control a drug dealing grandson dents complained, and the Huntsville Housing
who won’t stay away from her apartment. If Authority adopted a trespass resolution in
sympathy for such persons is the overwhelm March 1994. The resolution bans from pub
ing sentiment among your fellow tenants, they lic housing grounds for one year any non
may well prefer not to impose a “one strike” resident who was charged with a crime,
policy. But you might ask them to look at the threatened violence, damaged housing
larger picture—to think of the many families authority property, or had a confrontation
currently on a waiting list for public housing, with a law enforcement officer on Huntsville
people who would follow the rules and allow Housing Authority property.
everyone else to live in peace and safety.
33
TRESPASS
At the time of this writing, there were 600 Police Anti-drug Tactics: New Approaches
people specifically prohibited from setting and Applications. (1996). Washington: Po
foot on or driving through the private areas of lice Executive Research Forum. 202-466-
Huntsville’s public housing complexes. Pri 7820.
vate areas include the alleys and yards. Problem-Oriented Drug Enforcement: A
Those who violate the criminal trespass re Community-Based Approach for Effective
quirements are subject to as much as 180 Policing. (1993). Washington: Bureau of
days in jail for each violation. Justice Assistance. 800-688-4252.
The trespass law, along with increased police Vance, Timothy. (1994). How to Get Drug
patrols, has reduced crime 87 percent over Enterprises Out of Housing. New York:
the past two years. Because it is much easier Citizens Housing and Planning Council. 323-
for police to win a conviction on criminal 391-9030.
trespass than on drug or violence charges,
police say that the criminal trespass ordinance
Organizations
is one of their best tools for fighting crime in
housing complexes. American Bar Association
Standing Committee on Dispute Resolution
740 15th St.
Washington, DC 2005
References
202-662-1680
Publications
Big Brothers/Big Sisters of America
Cadwalader, Wickersham & Taft. (1993). 230 North 13th St.
A Civil War: A Community Legal Guide to Philadelphia, PA 19107
Fighting Street Drug Markets. New York: 215-567-7000
Cadwalader, Wickersham & Taft—Attor-
neys at Law. (Also available through the HUD Drug Information and Strategy Clear
Center for Community Interest, 202-785- inghouse
7844.) P.O. Box 6424
Neighborhood-Oriented Policing in Rural Rockville, MD 20850
Communities: A Program Planning Guide. 800-578-DISC
(1994). Washington: Bureau of Justice As
sistance. 800-688-4252. Huntsville (Alabama) Housing Authority
Larry Dejarnetti
New York County District Attorney’s Office.
Director of Resident Services
A Guide to Building Effective Partnerships
205-539-0774
Among Communities, Police and Prosecu
or
tors. (1993). Contact: Robert M. Morgen
Huntsville Police Department
thau, District Attorney, New York County,
Capt. Andy Jackson, Lt. Pat Trussell, or Sgt.
One Hogan Place, New York, NY 10013.
Randy Owens
205-532-0774
34
TRESPASS
Endnotes
1 Citizens’arrest is not recommended for a
civilian who is not trained or equipped to
work in security, as it is simply too dangerous
an undertaking.
2 Tex. Code Crim. Proc. Art. 14.01.
35
TRESPASS
Chapter 6
36
YOUTH AND GANGS
spectrum, gang members may be involved in culture than the development of individual
drug crimes, stealing cars, weapons offenses, gangs with a national infrastructure. While
felony assaults, arson, extortion, drive-by some street gangs have national scope, many
shootings, and homicides. Gangs and guns are localized imitations of Los Angeles or
are a lethal combination in some communities, Chicago street gangs.”1
with semiautomatic pistols as one of the most Race and Ethnic Background. Gangs
common weapons. Some gang members are often, but not always, organized along ra
may travel out of state to buy guns and bring cial or ethnic lines. Predominantly African
them back, and a few gangs have even had American gangs may identify with (but not
members enlist in the military to learn about necessarily be closely linked with) gangs like
combat tactics and weapons. the Crips in Los Angeles or the Black Gang
Organization and Leadership. Very few ster Disciples (BGDs) in Chicago or Detroit;
gangs are tightly structured and businesslike. or they may be strictly local gangs. The gangs
Even large, violent gangs that claim to have in the District of Columbia are called “crews.”
members throughout a city are generally not Primarily Hispanic gangs may be neighbor-
well organized, but instead tend to be a loose hood-based and independent, or they may
affiliation of small, neighborhood-based affiliate with a larger gang like the Latin Kings
gangs, sometimes called “sets.” There are (to name just one). Jamaican gangs, usually
recognized leaders—usually the members called “posses,” and gangs whose members
with the most money, drug or gun connec represent Asian cultures (Cambodia, Viet
tions, or reputations for being the toughest— nam, China, Samoa, and others) may be
but leadership status tends to come and go. found throughout the country. Caucasian
Gangs that are well organized tend to be gangs include motorcycle gangs; “skinheads,”
“dedicated” to a particular type of crime like who have a white supremacist agenda; or
drug dealing, extortion, robbery, burglary, “stoner” gangs, which are mostly into using
auto theft, and others. Some gangs (such as drugs. Gangs, however, may also be racially
the Mexican Mafia in California and several mixed, a trend that seems to be increasing in
Southwestern states and the Vice Lords in some cities.
Chicago) have leaders who exert control from Signs and Symbols. Generally speaking,
their prison cells over gang activities back in youth who belong to gangs tend to advertise
their neighborhoods. their gang status, both by physical signs and
Migration. A gang may have migrated to symbols and by attitudes that reflect their re
your neighborhood from another city, but it is jection of authority and of conventional life
more likely that it was started by local youth, styles. Nicknames (“monikers,” or street
sometimes with help from outsiders (for ex names) are common. Gangs often distinguish
ample, gang-involved youth whose parents themselves by wearing the same colors,
sent them to live with relatives in what they clothing styles, clothing brands, hair styles,
hope is a safer neighborhood). In fact, many jewelry, and tattoos; by “throwing” or “flash
police gang experts believe “the spread of ing” hand signs; or by using special symbols
street gangs is more a spread of street gang (crown, pitchfork, six-pointed star, etc.) in
37
YOUTH AND GANGS
their graffiti or on their clothing or property. relatively small number of members who have
Popular styles or brands may change, and a strong commitment to a gang and who
some symbols are not obvious. In one city, commit violent or other serious crimes.
for example, tennis shoes hanging over a tele Those with a somewhat lesser commitment
phone wire indicated a gang presence. Fi and less frequent involvement in serious
nally, there are some gangs that don’t “adver- crimes may be classified by police as gang
tise”—members don’t wear colors, act out in “associates.” The term “wannabe” is some
school, etc. A number of Asian gangs and times used to refer to young children or teens
drug-dealing gangs fall into this group. who show an interest in gangs but are not
members. For example, they may adopt a
Age and Sex. There are many accounts of
gang’s style of dress, scribble gang symbols
children involved with gangs as early as ele
on notebooks, or run errands for gang mem
mentary school, but more typically, gangs at
bers. Many gang experts discourage the term
tract youth between the ages of about 14 and
wannabe because they do not want to exag
21. However, some gangs have members in
gerate these children’s gang involvement or
their twenties, thirties, or older. These mem
add them inappropriately to a database of
bers may be called “OGs,” “old gangsters,”
gang members.
or “original gangsters.” Gangs may be all
male or all female, or they may have full
fledged members of both sexes. All-male Gangs and Criminal Justice
gangs are the most common, with females in Agencies
volved on the periphery. Female friends of Police. Some police departments have spe
gang members may just socialize with them, cialized gang units, and others do not. Lack
or they may also commit delinquent or crimi of a gang unit may be a matter of money, pri
nal acts (steal weapons, hold or sell drugs, orities, or “official” denial of gang problems;
fight, act as spies). They are often subjected or the department may believe that other
to physical or verbal abuse. Just as alarming, strategies are more effective. The point is to
some communities report increasing numbers find out what your police department is doing
of all-female gangs, some of which focus on to deal with gangs.
particular crimes, such as ATM robberies, If the department does have a gang unit, it
forgery, or shoplifting. may be part of field operations, investigations,
Gang Initiation and Status. Prospective juvenile, or some other division or bureau.
gang members may be required to prove The unit’s duties may be intelligence
themselves by going through an initiation ritual gathering, maintaining a gang database, en
before being accepted into a gang. This may forcement, investigations, coordination with
involve committing a criminal act or taking a other jurisdictions, prevention, education, or
beating (sometimes called “jumping in” or some combination of these. Some gang units
“beating in”). Girls who join a primarily male operate anonymous tip lines. Some have
gang may be initiated the same way, or by special teams dispatched to diffuse or inter
committing a sexual act (“sexing in”). Police vene in school-based gang incidents.
often use the term “hard core” to describe the
38
YOUTH AND GANGS
It is also important to discover your depart- siderable power when it comes to holding
ment’s overriding gang-enforcement strate violent gang members accountable.
gies. For example, is the emphasis on devel Prosecution. You will also want to know
oping complex cases against gang leaders, more about the prosecutor’s and court’s re
street-level enforcement, or both? What is its sponse to gangs. For example, does the
relationship with other agencies, particularly prosecutor’s office use “vertical prosecution”
the schools and community organizations in in cases involving gang members? (Vertical
your neighborhood? How do officers’ cul prosecution occurs when one prosecutor or a
tural sensitivity and language skills match up team of prosecutors is assigned exclusively to
with the ethnic and racial backgrounds of handle gang-related cases.) What information
gang members in your neighborhood? If the can the prosecutor give you about gang cases
department has a gang unit, how does it co in your neighborhood? (Some prosecutors
ordinate with community policing officers as maintain their own gang databases while oth
signed to your neighborhood? How does it ers use databases operated by the police.)
coordinate with drug enforcement units? Does the prosecutor use a “community
Probation and Parole. The juvenile or prosecution” approach, with one or more
adult probation departments serving your city prosecutors assigned exclusively to a commu
may also have gang units. In some cities, po nity that includes your neighborhood? What
lice gang officers train probation personnel on protections are available for victims and wit
gang signs, symbols, and activities. Police nesses in gang cases?
may team with probation officers to identify Corrections. Most issues related to juve
gang members, returning to custody those nile corrections go beyond the scope of this
who violate the terms of their probation or chapter. Still, as part of your strategy, you
parole. Questions to ask include these: will want answers to these questions:
¤ Which field offices serve probationers ¤ What services are provided at juvenile
and parolees who reside in your correctional facilities that might help
neighborhood? youth give up gangs?
¤ How does the probation office work ¤ How does staff limit residents’ contact
with police and others on gang-related with other gang members in the institu
cases and problems? tion and back home?
¤ What conditions of probation must be ¤ What kind of follow-up supervision
met by gang-involved youth? and services do gang-involved youth
¤ What services do they receive that receive when they return home?
might help them break their involve ¤ How can the community enhance su
ment with gangs? pervision or improve services?
Juvenile probation officers and supervisors in These questions are critical because, even
the field office closest to your neighborhood when correctional services are available, their
should be able to tell you more about the chances for long-term success are greatly di
gangs that threaten you. They also have con minished if the youth returns to a neighbor
39
YOUTH AND GANGS
hood where gangs “rule” and positive alterna Talk to recreation center supervisors, busi
tives are limited. ness owners, faith community leaders, public
housing and other multi-family housing staff,
Taking Inventory of Your Gang hospital emergency room personnel—anyone
Problem who has firsthand knowledge of gangs in your
To be sure your resources and energy are not community. Talk to former gang members as
misdirected, get all the information you can well as neighborhood youth who have suc
about the particular gang problem in your cessfully avoided gang involvement. Look for
neighborhood. Be sure to find out if there is youth groups already involved in addressing
an existing anti-gang coalition you can con- gang issues, either through the schools,
tact—either a citywide group, or groups in churches, or other neighborhood organiza
specific neighborhoods. Ask the police and tions.
prosecutor about state and local gang-related
laws and ordinances. Questions to Ask
You may well find that “official” police, ¤ How many members and associates
school, court, and other data about gangs is does the gang have? What are the age
scarce. Many police agencies, for example, range, gender, and ethnic background
do not classify crimes as gang-related or not. of its members?
Spend time talking to individual police officers ¤ What are the gang’s signs and symbols
and supervisors—community policing officers and what do they mean?
assigned to your neighborhood, the precinct ¤ Is the gang independent or affiliated
commander and community policing coordi with other gangs? Does it present a
nator, gang and drug unit personnel, and ju new or a long-standing problem in the
venile officers. Meet with school administra community?
tors, teachers, counselors, and coaches. Ask ¤ What geographic area does the gang
about truancy and dropout rates and what is claim, if any? Who are its rivals?
being done about them. ¤ In what types of delinquent and crimi
nal activities are gang members en
Tip: Find out how your police de gaged? (You should try to describe as
fine the term “gang-related.” In specifically as possible the who, what,
some departments, any crime in where, and when.)
volving a known gang member is ¤ Who are the leaders? Are they in
classified as gang-related, whether
or not the person was acting on be school? On probation? Are there
half of the gang. This may end up outstanding warrants for their arrest?
overstating the gang problem. ¤ What types of gang problems have
Other departments do not classify a occurred in the schools?
crime as gang-related unless it is
considered gang-motivated. This ¤ What policies do the schools have re
may tend to understate the gang lated to gangs (for example, weapons
problem. policies or dress and behavior codes)?
How are those policies enforced?
40
YOUTH AND GANGS
41
YOUTH AND GANGS
hood, they will be more willing to report this problem with the prosecutor and
crimes and information. the victim assistance office.
¤ Defuse Gang Conflicts. In some
¤ Report Crimes and Information.
communities, individual leaders have
Increase safety and call police atten
successfully defused volatile situations
tion to your neighborhood by picking
and have prevented gang confronta
up the phone and calling 911 to report
tions. These leaders have included
gang-related crimes. Form block
former gang members, police officers,
watches. Cooperate with investiga
clergy, university professors, and oth
tions of hard-core gang leaders.
ers. One example is the University of
¤ Set Up an Anonymous Tip Line.
Connecticut Institute for Violence Re
Establish an anonymous tip line to
duction. Institute staff have intervened
provide police with information about
with specific gangs in Hartford, and
gangs and violence. See the section
the Institute’s board includes clergy,
on “Putting It All Together” at the end
community organizations, Mothers
of this chapter for information on the
Against Gangs, police, and others.
24-hour Secret Witness Hotline estab
¤ Use the Power of Probation and
lished by the Ad Hoc Group Against
Parole. Probation officers have
Crime in Kansas City, Missouri.
enormous power to influence the
¤ Work with Community Policing
judge’s setting of probation conditions
Officers. Community policing em
and to initiate proceedings to revoke
phasizes assigning officers to specific
probation for serious and violent gang
neighborhoods and encouraging them
members. They can also conduct
to solve problems with residents. (See
searches, order drug tests, and require
Chapter 9.) Find out who your neigh-
face-to-face meetings with persons
borhood’s officers are. If your de
under their supervision. Gang mem
partment does not make permanent
bers can be ordered to stay away
beat assignments, push for change.
from one another and to stay away
Encourage the department to give
from the neighborhood if they do not
neighborhood officers beepers or cel
reside there. Find out who gang
lular phones so residents can contact
members’ probation officers are.
them directly
Press for stringent conditions, and re
¤ Operate Citizen Patrols. Chapter
port violations.
2 on open-air drug dealing discusses
¤ Use the Power of the Courts
this tactic.
and Prosecutor. See Chapter 10
¤ Improve Victim and Witness
on working with courts and prosecu
Protection. Prosecutors and police
tors. Hold them accountable for tak
often lack resources for witness pro
ing gangs seriously.
tection or relocation, which may be
¤ Provide Training on Diverse Cul
necessary for witnesses of gang vio
tures. Your police department may
lence. Explore possible solutions to
have few officers with the same cul
42
YOUTH AND GANGS
tural background as the gang members the East Coast. The school also has
in your community. Community po graffiti removal teams, and the students
licing officers in San Diego, for exam developed their own Youth Crime
ple, could make little headway against Watch program, which involves 15-20
Cambodian gangs until residents influential students with radios patrol
worked with them and introduced ling the halls. Principal Jeff Miller at
them to church leaders. Braddock strongly advocates student
¤ Volunteer as a Translator. Resi involvement in making the school safe
dents can provide valuable services as and secure.
translators for the police, courts, social ¤ Revise Fire Regulations. Often
services, schools, and others. these regulations require leaving too
many doors unlocked, making it easy
Strategy 3. Improve School Safety for gang members (or anyone else, for
and Security that matter) to come in and out at will.
If gangs are operating in your schools, take ¤ Train School Personnel. Ask po
immediate steps to send a clear message of lice and community organization staff
intolerance by using tactics like these: to provide training for teachers and
¤ Revise School Rules and Regu other school personnel on how to rec
lations. Work with school officials, ognize gang signs and symbols and
parent groups, and students to de how to use community resources.
velop regulations that discourage Other training topics might include
gangs, drugs, and violence on school drugs, nonviolent educational strate
grounds. Develop or revise dress gies, or conflict resolution. The Alex
codes, prohibiting gang attire. Adopt andria, Virginia, Police Department
uniforms. Ban beepers, pagers, and held special gang training for teachers
cellular phones from school grounds. and school administrators after a youth
Tighten weapons policies. was stabbed to death in a gang fight in
¤ Improve Physical Security. Con front of the junior high school.
sider metal detectors, security guards, ¤ Monitor School Attendance. Use
fences, landscaping, lighting improve parent or community volunteers to
ments, and student or parent volunteer monitor school attendance and call
patrols. No one wants the community parents of absent youth. In Anaheim,
school to look like an armed fortress, California, police gang officers are in
yet some communities have seen the volved in attendance monitoring and
need for such measures, either as tem disciplinary proceedings. The officers
porary or long-term strategies. For review attendance records, contact
example, metal detectors and uni parents, and participate at attendance
formed guards are in place at G. H. and disciplinary hearings with students,
Braddock High in Homestead, Flor parents, and school officials. These
ida. With 5,000 students, Braddock officers also link arrested youth to al
is one of the largest high schools on ternative school programs.
43
YOUTH AND GANGS
44
YOUTH AND GANGS
for several reasons. The need for a porters. Tell them about the positive
curfew was backed by statistics on the steps your neighborhood is taking to
level of juvenile crime committed dur combat the gang problem. Encourage
ing the proposed curfew hours; the them to cover prevention and inter
ordinance states an intent to protect vention efforts, not just suppression.
children from harm, not simply prevent Encourage editors to develop guide
them from congregating; and the law is lines for reporting on gangs. Most
narrowly drawn, allowing exceptions news media do not have such guide
for many legitimate reasons. As a re lines. Printing the names of gangs en
sult, the Dallas curfew law has passed courages them by giving them the at
a series of court tests, and the U.S. tention they crave. When newspapers
Supreme Court recently refused to publish the names of victims, they of
hear a case challenging that law. Even ten identify them as victims of gang
when a curfew law is carefully con crimes, leaving them or their family
structed, though, there are other im members terrified—sometimes terror-
portant issues to consider. Police ized—as a result.
must have the resources needed to
enforce the law; the law must be en Strategy 6. Provide Youth with
forced consistently and fairly; children Positive Alternatives
will need a safe place to go when par Take a hard look at the reasons why youth
ents cannot be found; and there should join gangs. A striking number of gang mem
be some means to hold parents ac bers talk about their gangs as “family,” sug
countable. gesting that gangs offer a substitute for some
thing missing at home. There are no easy
Strategy 5. Conduct Public answers. Sometimes youth join gangs for
Information Campaigns protection—they are afraid not to do so.
¤ Sponsor Parent and Community Sometimes the appeal is the excitement rep
Forums on Gangs. Share the in resented by the gang lifestyle—quick money,
formation you have gained with a cars, parties, girls, alcohol, drugs. Some chil
wider audience. Presentations by dren are in gangs because their relatives, in
community leaders, police, and others cluding parents or even grandparents, are in
may be made at regular meetings of gangs. Others feel beaten down by poverty,
existing organizations or at special unemployment, crime, or school failure, and
meetings convened solely to focus on have little hope for a better future.
gangs and violence. Most gang-involved youth need more than
¤ Encourage Media Responsibil just one thing (a decent recreation center, for
ity. If you believe that the newspaper
example, or even a good friend) to break free
or local television and radio news cov of gangs, crime, and drugs. But each small
erage or programming should be more step can help, especially when it is part of a
responsible, express your concerns as broader, long-term strategy to turn things
a group. Meet with editors and re around. Remember that not every program
45
YOUTH AND GANGS
or approach that sounds good really does services, the Institute serves youth and
good. Collect information about what has family members released from prison
been done in similar communities around the and brings college and community
country. Ask questions about why various college instructors into the community.
approaches were successful and others were ¤ Provide Structured, Safe Activi
not. (For example, was the idea off base, or ties When School Is Out. Com
was it a good idea that was poorly exe munities throughout the country are
cuted?) Contact the National Youth Gang expanding the use of schools during
Center and other resources. (See Refer non-school hours through Safe Havens
ences.) In this section, we will suggest briefly programs. Activities include sports,
some approaches that may help meet your tutoring, recreational activities, parent
community’s needs. education, and many others. Training
to get Safe Haven programs off the
Tip: Local college or university ground is available to all cities with
students may be eager to help. In Weed and Seed projects. Another ex
Racine, Wisconsin, a student re
search team at the University of
ample is Urban Art, Ink. This after
Wisconsin, Parkside, Department of school arts program operates at Jef
Sociology, talked to 500 Racine ferson High in Denver, Colorado. The
residents, including gang members, neighborhood is a Comprehensive
community leaders, police, media
representatives, and others. The
Gangs Initiative target area. Midnight
students’ report helped Racine get Basketball is a well-known example of
grants for two youth service proj- how one person can begin to make a
ects related to gangs. difference. Started by G. Van
Standeford of Glen Arden, Maryland,
¤ Provide Direct Services to Gang- it is now a national organization based
Involved Youth. Helping gang in Oakland, California, and operates
involved youth who have already programs in 42 cities. Geared to
committed violent or serious crimes is youth ages 17-25, Midnight Basket
the focus of Project Comin’ Up in ball not only offers a safe place to play
Fort Worth, Texas, a partnership in the game at night, but also includes
volving the Boys and Girls Club, Tar AIDS education, drug programs, ca
rant County Citizen’s Crime Commis reer information, job training, and
sion, and Parks and Community other services. FORCE (Females
Services. Project Comin’ Up identi Obtaining Resources for Cultural En
fies the most violent gangs and aims richment) is sponsored by the Boston,
services at individual gang members, Massachusetts, Housing Authority. In
with the objective of reducing violent seeking to address kids’ needs for ac
behavior. Another example is the ceptance, loyalty, and a feeling of fam
University of Connecticut Institute for ily, FORCE offers sports, debate
Violence Reduction. In addition to teams, and other activities. Gangs to
providing direct conflict mediation Clubs in Providence, Rhode Island,
46
YOUTH AND GANGS
47
YOUTH AND GANGS
¤ raising community awareness about tice, Office of Juvenile Justice and Delin
crime and violence quency Prevention. 800-851-3420.
¤ improving relationships between the Curry, G. David. (1995). Responding to
black community and the police de Gang-related Crime and Delinquency: A
partment Review of the Literature. Washington:
¤ maintaining a 24-hour Secret Witness U.S. Department of Justice, National Institute
Hotline to enable residents to report of Justice. 800-851-3420.
crimes anonymously
¤ forming a community reward fund to Esbensen, Finn-Aage. (September 1996).
offer rewards for crime tips that lead “Gang Resistance Education and Training:
to arrest The National Evaluation.” The Police Chief.
Alexandria, Virginia: International Association
The proliferation of crack cocaine in the of Chiefs of Police. 703-836-6767.
1980s brought a new emphasis on combating
drugs and gangs. Ad Hoc organized “anti Finn, Peter, and K. M. Healey. (November
dope house” marches, conducted court 1996). Preventing Gang- and Drug-
watches, commissioned reports on black Related Witness Intimidation. Washington:
homicides and other issues, and formed a U.S. Department of Justice, National Institute
rape victims’ task force. of Justice. 800-851-3420.
In the early 1990s, Ad Hoc raised the money Gangs: A Community Response. (Septem
to hire a small staff. In addition to continuing ber 1994). Sacramento, California: Crime
its direct-action, crime-fighting objectives, Ad and Violence Prevention Center, California
Hoc has added several programs for youth, Attorney General’s Office. 916-324-7863.
including Youth and Gang Services, which Howell, James C. (1997). Youth Gang
operates a 24-hour youth helpline; Project Violence Prevention and Intervention:
Redirect, which includes gang awareness, What Works. Report prepared for the U.S.
violence reduction training, AIDS awareness, Department of Justice, Office of Juvenile Jus
and other components; Project Intercept, tice and Delinquency Prevention. Tallahas
which targets middle school youth at high risk see, Florida: National Youth Gang Center.
for gang involvement and low school 904-385-0600.
achievement; and other programs and serv
Huff, Ronald (ed.). (1990). Gangs in
ices directed at ex-offenders.
America. Newbury Park, California: Sage
Publications.
48
YOUTH AND GANGS
Boys and Girls Clubs of America Office of Juvenile Justice and Delinquency
771 1st Avenue Prevention (OJJDP)
New York, NY 10017 Office of Justice Programs, U.S. Department
212-351-5911 of Justice
Gang prevention, recreation, enrichment, National Youth Gang Center
education, and other youth programs. P.O. Box 12729
Tallahassee, FL 32317
Los Angeles City Attorney’s Office
904-385-0600, ext. 259 or 285
Martin Vranicar, Jr.
http://www.iir.com/nygc/nygc.htm
Assistant City Attorney
Clearinghouse for juvenile gang information.
1600 City Hall East
200 N. Main St.
Open Door Youth Gang Alternatives
Los Angeles, CA 90012
Reverend Leon Kelly, Executive Director
213-237-1006
1615 California St.
Civil abatement information.
Denver, CO 80202
North Carolina Center for the Prevention of
303-893-4264
School Violence
Crisis intervention, mediation, gang preven
Dr. Pamela L. Riley, Director
tion, and intervention services.
3824 Barrett Dr., Suite 303
Raleigh, NC 27609
49
YOUTH AND GANGS
Endnote
1 TheNational Drug Intelligence Center
(NDIC) Street Gang Symposium, Selected
Findings, April 12, 1995.
50
GRAFFITI
Chapter 7
Graffiti
51
GRAFFITI
letters, “balloon” letters, etc.) may give an in on taggers. (See references at end of this
dication of the type of gangs involved. Some chapter.)
gangs have members who specialize in writing
the graffiti, which has also been characterized Taking Inventory
as a “newspaper” for some gangs. Gang Although quick removal (after documenting
graffiti may also appear on clothing, note the problem) is the number one objective for
books, and interior walls. all graffiti abatement efforts, the details in
volved in planning your response will depend
Tagger and Other Graffiti on the type of graffiti with which you are
Not all graffiti is written by gang members. dealing. For example, if the graffiti is pro
Drug dealers also may use it to tell users duced by gang members and contains recent
where they can buy drugs. It may have big “cross outs” or threats, the police will need to
otry at its core, containing hate messages di know about it and document it. Here are
rected at other races, religions, or genders. some steps you can take to help you analyze
Some graffiti may be expressions of profanity, the problem:
some communicates political opinions, and ¤ Take photographs of marked build
some (“Tom loves Mary”) may be classified ings, walls, etc.
as “bubble gum” graffiti. ¤ Learn to recognize basic gang graffiti
But perhaps more commonly, graffiti comes styles and messages. Consult with
from “taggers” who “sign” their work with a appropriate police officials (gang spe
unique name or moniker. Taggers generally cialists, hate crime unit, juvenile offi
seek to impress their peers with how often cers, community policing officers)
their graffiti may be seen or by the difficulties about how to interpret unfamiliar sym
they had to overcome to paint it. Taggers bols and markings.
may also be thrill seekers, excited by the dan ¤ Determine the extent and type of graf
gers involved in eluding the law or by the fiti problems in and around the
danger of placing graffiti in high places. Tag schools. You may also identify stu
gers may act alone or they may belong to tag dent groups that can help with school
ger “crews” or gangs whose main activity is and neighborhood graffiti removal.
creating graffiti. ¤ Check with other agencies involved in
graffiti abatement. In some jurisdic
Tagger graffiti ranges from short messages to
tions, a neighborhood services or
mural-sized drawings, known as “pieces,”
similar office of local government has
and some taggers have been known to keep
been designated as the graffiti abate
notebooks of their work. While tagging is
ment coordinator (for example, the
usually thought of as a nonviolent crime, some
Neighborhood Services Department in
communities have found taggers armed with
Sacramento, CA, and the Public Re
knives and guns, not just spray paint. The
sponse Office in Clark County (Las
Portland Police Bureau, East Precinct Neigh
Vegas), NV).
borhood Response Team, has put together a
detailed guidebook for officers and residents
52
GRAFFITI
53
GRAFFITI
¤ Discuss Your Plans with the Po photographs of each site for the
lice. In neighborhoods where the volunteers to use.
graffiti was done by violent gangs, you - Use other volunteers to circulate,
may need to arrange for police pro supervise the painting crews, and
tection for the paint-out. replenish supplies.
¤ Obtain Consent Forms. Property - If possible, take new pictures for
owners should provide you with a display of “before and after.”
signed forms that give you permission ¤ Debrief and Get Ready Again.
to paint over graffiti on their properties After the paint-out, hold a second
according to the agreed-upon color meeting to debrief, thank the volun
scheme. teers, and plan for future efforts. Re
¤ Take Care of Details. Paint-outs solve to paint over future graffiti. As
are not complicated, but attention to sign responsibility for reporting and
details is important. Use a checklist to recording graffiti and for organizing
plan ahead and keep things running new paint-outs. Property owners can
smoothly. tell their maintenance staff to check
- Obtain supplies such as paint, every morning to see if there is graffiti
rollers, brushes, paint trays, safety on their walls and immediately paint it
equipment, drop cloths, etc. (See over.
checklist at the end of this chap
ter.) These may be donated by
Tip: Many removal products are
businesses or community groups hazardous to personal health and
or paid for by the volunteers. to the environment. Always wear
- Set a time and date for painting appropriate safety gear, including
over existing graffiti that does not clothing, masks, breathing equip
ment, and eye protection. Follow
conflict with any other community the instructions on all cleaning
events. (Early on Saturday products. Properly dispose of haz
morning has proved to be a good ardous materials.
time for many communities.)
- Distribute a flier to the affected Strategy 2. Hold Graffiti Vandals
neighborhoods informing resi Accountable
dents and businesses of the paint
All actions of the community group should be
out.
coordinated with local law enforcement to
- Choose an assembly location that
help ensure that graffiti vandals are held ac
allows you to distribute supplies
countable or prosecuted.
and park cars (for example, a
church or business parking lot). ¤ Take Pictures. Give copies of all
- Assign volunteers to specific tar pictures of graffiti to the police along
get locations and give them the with documentation of when and
materials needed to paint over the where the pictures were taken.
graffiti. Try to have maps and
54
GRAFFITI
55
GRAFFITI
56
GRAFFITI
ism, not art, but some community graffiti sites to cover up the graffiti with spe
groups have sought to channel the ar cial paint that covers graffiti easily. Funds for
tistic creativity of some graffiti vandals the special graffiti removal work team come
into positive pursuits. In Seattle, for from drug forfeiture funds.
example, the South of the Dome Busi The graffiti removal team fully documents its
ness Association is complementing its work. Key descriptors of each graffiti inci
paint-over abatement efforts by creat dent are recorded, and sites are photo
ing an “Urban Art Corridor” which will graphed for future prosecution. Property
feature 50 murals painted by former owners complete a form granting permission
graffiti vandals. The program hopes to for the work team to remove graffiti from their
commission professional artists to property. Records are kept of the time spent
work as mentors with the youth, and to remove the graffiti at each site and the cost
landscaping in the area will be de incurred, so that restitution orders may be
signed and cared for by youth groups. sought. Citizens are a key element of this
Other cities with successful mural program, which cannot work unless citizen
projects include Philadelphia and San reports of graffiti are made as soon as the
Antonio. Not all mural projects suc graffiti appears.
ceed, however. The most successful
ones emphasize adult supervision and In Scottsdale, Arizona, police and community
links to other youth-serving programs. cooperation was critical for establishing a 48
¤ Encourage Youth Education. A hour graffiti-abatement program. Local paint
few jurisdictions have undertaken edu merchants donated paint for an experiment to
cational programs directed at pre test whether painting over graffiti would be
venting children from committing graf successful and were pleased that it was.
fiti crimes. These efforts typically Based on this winning experience, a neigh
involve adding an anti-graffiti message borhood enhancement committee convinced
to other educational programs like the city council to fund a special position to
DARE (Drug Abuse Resistance Edu oversee graffiti removal. Much of the equip
cation) and to environmental protec ment used by the city staff, including a truck
tion programs (aerosol adds to ozone and paint sprayer, was donated by local mer
depletion). chants, who continue to donate paint. The
city council also funded a 24-hour hot line for
reporting graffiti. A second hot line provides
Putting It All Together rewards to callers who can identify people
The City of West Palm Beach, Florida, has who commit specific graffiti crimes.
developed a graffiti eradication program that Scottsdale also has a voluntary program en
seeks to remove all graffiti within 48 hours of couraging merchants to lock up aerosol spray
notification. Countywide graffiti hot lines op paint to prevent its being stolen by graffiti
erated by the sheriff have been established to criminals.
facilitate reporting. City painters, including
offender work details, are sent to reported
57
GRAFFITI
58
STREET PROSTITUTION
Chapter 8
Street Prostitution
59
STREET PROSTITUTION
comes congested. In short, community life is learn of the area, and more customers means
hindered. still more prostitutes. Over time, the market
may expand from its original location to en
Street prostitution and the problems that so
croach on surrounding streets and neighbor
often accompany it are not easily eradicated
hoods.
because they have usually been entrenched in
an area for years. Customers and prostitutes
keep coming back because of the neighbor-
hood’s reputation as a market. In addition, Strategies and Tactics
police, judges, and other city officials often Neighborhood groups and their supporters
view the problem as a consensual transaction can use three basic strategies to fight the es
between people who have been victimized by tablishment, maintenance, or growth of street
life. They are thus inclined to assign a low prostitution markets:
priority to prostitution cases and fail to recog
¤ Communicate community disapproval
nize the value to a community of shutting
of street prostitution.
down prostitution markets. But with tenacity
¤ Limit access to prostitution markets.
and a broad-based effort, prostitution mar
¤ Eliminate the sense of impunity of
kets can be shut down.
prostitutes and their patrons.
In the face of aggressive community action, If you’ve read Chapter 2, these strategies will
most street prostitutes, looking for paths of sound very familiar. The reason is that the
lesser resistance, are likely to quickly move to tactics for combating street drug markets and
more “hospitable” locations. In other words, street prostitution markets are fundamentally
prostitution markets exist where they are tol the same. In fact, the two types of illicit mar
erated. kets frequently occupy the same place at the
Prostitution markets are not rigidly organized. same time; consult Chapter 2 for additional
Rather, they are somewhat fluid in their information.
structure, with regular turnover and a variety
Tip: Remember, the prostitute’s cus
of business arrangements. Some prostitutes tomers value their privacy even
work independently, others work in small more than drug users. Slightly in
groups associated with men with whom they creasing the risk of public exposure
are involved romantically, and still others will deter many johns.
work for professional “pimps” who manage
groups of women in a fairly bureaucratic way, Strategy 1. Communicate
providing protection, management, and su Community Disapproval
pervision. All of these modes of prostitution
Driving prostitutes out of a neighborhood
management can exist in a prostitution market
permanently requires more than an occasional
at the same time. The markets themselves
police raid. When tactics are carried out ex
spring up in neighborhoods on an ad hoc ba
clusively by law enforcement (arrests and
sis and then become established by word of
“sweeps”), the prostitutes often return as
mouth. The longer a market operates, the
soon as they are released by the police. To
more well known it becomes. More patrons
prevent this from happening, the community
60
STREET PROSTITUTION
needs to send a strong message of disap ously oppose street prostitution activ
proval and intolerance for street prostitution. ity. Cleaning up the neighborhood
Visible action by the community helps to sends the opposite signal. Organized
demonstrate to prostitutes and their patrons community efforts should focus on
that opposition to prostitution is a constant, getting the city government to devote
not an occasional, concern. resources to cleanup projects, in addi
tion to any private cleanups that are
Here are some possible actions to demon
undertaken.
strate community intolerance of street prosti
¤ Outreach. Residents and visitors to
tution markets:
the area implicitly condone street
¤ Neighborhood Patrols. Use or prostitution when they keep silent.
ganized citizens’ groups to shadow the The pressure on prostitutes to move,
movements of prostitutes and their close down operations, or, ideally,
patrons, writing down their license seek help is increased when people
plate numbers and photographing their speak up. Expressing to those in
activities. This will decrease demand volved in prostitution your concern for
for the prostitutes’ services because their health and well-being, offering
the prospective patrons wish, quite real alternatives to life on the streets,
understandably, to remain anonymous. and objecting to the effects of the ac
To be effective, neighborhood patrols tivity on the neighborhood can be
must be highly visible and must signal more effective than you might think.
that they are willing to take concrete One woman in Kansas City, Mis
action to get rid of prostitution. souri, was able to have a dramatic im
¤ Signs. Post signs and banners that pact in her neighborhood using this
warn prostitutes and their customers approach, convincing many prostitutes
that citizens are watching and reporting to leave not just the neighborhood but
prostitution activity to police. Signs the business. There were three keys
warning about the dangers of AIDS to her success. First, she broke the
and other sexually transmitted diseases shell of anonymity by addressing the
might also drive down market “de prostitutes by their real names (which
mand.” she learned from the police, as most
¤ Community Cleanups. Organizing prostitutes use “street names” while
community cleanups, installing new working). Second, she was able to
street lights, towing away abandoned communicate to them her genuine love
cars, and sweeping litter off the street and concern. Finally, she directed in
makes it hard for prostitutes to oper terested prostitutes to appropriate
ate. Street prostitution markets often service agencies in the community
arise in areas that appear disorderly. where they could get the help they
Areas that are not well maintained are needed. Community health organiza
an indication that residents are unor tions, hospitals, drug treatment facili
ganized and will be unlikely to strenu ties, and medical schools often operate
61
STREET PROSTITUTION
community outreach programs and can Actions that may be effective in eliminating
be very helpful in your own efforts. that sense of impunity are described below:
¤ Closing Problem Businesses. ¤ Postcard Warnings. Postcards can
Closing bars, restaurants, and other be mailed to the owners of cars seen
businesses that turn a blind eye to cruising in the vicinity of prostitution
prostitution on or near their premises markets. Through the local division of
can make a dramatic difference. motor vehicles, police can trace the li
Community groups should first seek to cense plate numbers collected by citi
work with the business owners on zen patrols and send notices to the ve
steps that make the neighborhood less hicle owners “warning” them that to
hospitable to prostitution. If the busi frequent the area at certain hours is a
nesses are uncooperative, protests and dangerous health risk, or more em
picketing to inform patrons of the phatically, that anyone caught soliciting
owner’s unwillingness to combat pros prostitutes could have their names re
titution may be beneficial. If these ac leased to the press.
tions are unsuccessful, the neighbor ¤ Loitering Ordinances. Some cities
hood can turn to lawsuits alleging that have enacted prostitution-related loi
these establishments have become tering ordinances to prevent prostitutes
neighborhood nuisances. Liquor and from remaining in a given area for an
business licenses can also be chal extended length of time or prohibiting
lenged. them from flagging down cars. The
purpose of such ordinances is to em
Strategy 2. Remove the Sense of
Impunity power police to disperse, under pen
alty of arrest, people congregating in a
While street prostitution is a problem in cities
manner suggestive of street prostitution
across the United States, it is most serious in
activity, thus significantly reducing the
neighborhoods where a combination of inef
police resources required to disrupt
fective law enforcement and a sense of com
prostitution markets. These ordinances
munity powerlessness combine to give pros
generally detail specific activities asso
titutes and their patrons a belief that they can
ciated with the solicitation of prostitu
engage in prostitution with near impunity.
tion.
Removing the community’s sense of power
¤ Police Foot Patrols. Increase po
lessness is essential to driving entrenched
lice foot patrols in areas where prosti
prostitution markets out of residential neigh
tution markets are known to exist.
borhoods.
This increases police visibility in the
area and allows the officers more op
Tip: Police may have become frus
trated in previous attempts to en portunity to get to know the prosti
force prostitution laws. You must tutes. In addition, police officers
let them know that this is a high walking the streets of a prostitution
priority for the community in order
district are likely to give pause to any
to re-energize them.
potential client.
62
STREET PROSTITUTION
63
STREET PROSTITUTION
Organizations
Putting It All Together Wichita (Kansas) Police Department South
Residents in the New York City neighbor Central Prostitution Project
hood of Sunset Park were fed up with pros Captain Stephen Cole, Commander
titutes walking their streets late at night. They Wichita Police Department Patrol South Bu
decided to fight back by reaching out to the reau
police department and city officials. Based 211 East Pawnee
on the citizens’ complaints, the police started Wichita, Kansas 67211
mailing letters to the prostitutes’ customers. 316-337-9200
The police got the addresses through their li Award-winning police/citizen effort to reduce
cense plate numbers. The letters informed the prostitution and related crime in the city’s
johns that those caught soliciting prostitutes South Central neighborhood.
could have their names released to the press
and could face potential prosecution.
The campaign of the Sunset Park citizens, and
the subsequent police crackdown, resulted in
more than 700 arrests and lengthier-than-
normal prison sentences for many of the
neighborhood’s prostitutes.
References
Publications
Comparative Criminal Law Project. (1979).
Prostitution: Regulation and Control.
New York: New York University. 212-998-
2575 or 800-996-6987.
64
WORKING WITH THE POLICE
Chapter 9
Traditional Policing
your neighborhood, read this chapter. Over The philosophy and principles of community
the past 10 years, police agencies throughout policing evolved in response to the realization
the country have been working toward this that traditional law enforcement tactics alone
goal through community policing. Since so have not been enough to effectively reduce
many police agencies are adopting the ap crime and that the issues of disorder, fear of
proach, this chapter first reviews some basic crime, and quality of community life must be
community policing principles. The chapter addressed to maintain order. Community po
then offers recommendations for working with licing stresses the need to develop the com-
the police by taking responsibility for the munity’s capacity to accept shared responsi
problems in your neighborhood, understand bility as “co-producers” of public safety.
ing what your local police are doing to imple
ment community policing, and collaborating Advocates of community policing, while em
with the police to reduce disorder and other phasizing the need to keep what works, have
problems. become disenchanted with several traditional
policing tactics. Preventive patrol entails
motor patrol officers randomly patrolling
streets to act as a visible deterrent to crime
Analyzing the Problem
and to increase citizen satisfaction. Preven
High-crime communities have become in tive patrol creates uncertainty about the fre
creasingly dependent upon the police to exert quency and location of police in a community.
social control as the community’s bastion Rapid response assumes that the quicker an
against crime, disorder, and fear. Police have officer arrives at the scene of the crime, the
been characterized as the “thin blue line,” for better the chances of apprehending suspects,
tifying a community against predators and identifying witnesses, and preserving evi
wrongdoers. To sustain this role as the com- dence. Retrospective investigation is the fol
65
WORKING WITH THE POLICE
66
WORKING WITH THE POLICE
venting problems, separating symptoms from in the fullest sense of the word. Communica
problems, and seeking long-term solutions. tion simply involves individuals or groups
sharing information, thoughts, ideas, and feel
Community policing also emphasizes partner
ings, and can result in a better understanding
ships with the community. Developing strong,
of different perspectives. Cooperation in
self-sufficient communities is an essential step
volves informal relationships (for example,
in creating an atmosphere in which serious
agreements to “stay in touch,” or to make re
crime will not flourish. Community policing,
ferrals), but there is no common structure or
therefore, attempts to cultivate a sense of
planning effort, and resources remain sepa
community where there is little or none. Al
rate. Coordination involves more formal re
though community policing alone cannot be
lationships and an understanding of common
expected to revive communities, several of its
missions or goals. It also requires some joint
approaches are specifically geared to facilitate
planning and division of responsibilities. Fi
the growth of self-reliant communities. In ad
nally, collaboration can be defined as a mu
dition to problem-solving, these approaches
tually beneficial and well-defined relationship
include community collaboration, community
entered into by two or more organizations to
engagement, and community mobilization.
achieve common goals. Each organization
Problem Solving. Through joint problem has separate responsibilities that are required
solving with community members, community to meet those goals.
policing attempts to reduce the social decay
True police-community collaboration will
and disorder that breed persistent crime
produce comprehensive strategies directed at
problems as well as fear of crime. As public
physical decay, disorder, and crime prob
safety increases, citizens feel more confident
lems. The objective is to produce changes
about venturing out into their community and
that will result in stable neighborhoods over
interacting with others. This is the first step
the long term.
toward establishing relationships and building
a sense of community. As citizens become Community Engagement. Community
more informed about the status of crime in engagement is the process of stimulating
their neighborhood, learn how to protect community members to accept responsibility
themselves, and become actively involved in for and exercise control over their collective
crime control and prevention activities, they destiny as a community. To do this, police
become empowered to assume responsibility must provoke the interest and involvement of
for public safety. community members in improving the condi
tion of their community, including physical de
Community Collaboration. Under com
cay, disorder, and crime.
munity policing, building police-community
partnerships (one of the core community po Effective community engagement requires the
licing principles) means developing collabora development of trust between the police and
tive relationships with individuals and organi the community. This is achieved through po
zations. In fact, community policing involves lice interaction and meaningful dialogue with
establishing at least four types of relationships, the community’s formal leaders (church lead
with a goal of working toward collaboration ers, school principal, business owners) and
67
WORKING WITH THE POLICE
informal leaders (community activists or equipped to solve their own or their commu-
popular residents). Police are encouraged to nity’s problems.
attend and participate in community meetings, Successful community policing is often the re
events, and organizations; make personal sult of strong interagency partnerships. The
contacts with residents and businesses; and most effective community police officers are
conduct surveys to identify community needs those who have researched the availability of
and resources. these community resources and have estab
Through direct contact with the police, citi lished a relationship with agency representa
zens develop an increased appreciation for tives. For example, an officer who responds
police officers as trained professionals and as to a domestic dispute call might observe that
individuals. They may also develop an ap the husband accused of spousal abuse is
preciation for the police officers’ sense of drunk. Upon further investigation, the officer
personal commitment and concern for their might learn that there were many previous
community and its members. A department calls to this address and that each time, the
that encourages interaction with citizens gains husband reacted violently when inebriated.
a new perspective on the expectations, fears, Under the philosophy of community policing,
and interests of the community as customers an appropriate response to this situation might
of police services. Officers begin to recog involve the arrest or citation of the husband, a
nize that citizens do care about the police and referral to a local substance abuse agency for
the level of crime in the community. This type the husband, information to the wife about
of mutual understanding is the first step in de sources of outside support, and a recommen
veloping trust between the police and the dation to the prosecution to seek a court or
community. In turn, mutual trust is essential der for batterer and substance abuse treat
for building effective partnerships. ment. The officer would continue to follow
Mobilizing Community Resources. up later with the couple and would check
Within every community are businesses, so calls for service and arrest records to assess
cial service agencies, religious organizations, their progress.
and civic agencies that are valuable resources
for dealing with community problems. The
community policing concept recognizes that Strategies and Tactics
when service providers work closely with the In developing an effective working relation
community, they become more aware of the ship with the police, you can use three basic
underlying causes and extent of social prob strategies:
lems and can adjust accordingly to provide
¤ Take responsibility for disorder in your
new and better ways of delivering services.
neighborhood.
In addition, through close cooperation, serv
¤ Learn how the police are implementing
ice providers can identify any gaps or over
community policing.
laps in human services and provide or coordi
¤ Work with the police on a collabora
nate the needed service. Citizens who are
tive strategy to reduce disorder.
aware of and use these services will be better
68
WORKING WITH THE POLICE
Strategy 1. Take Responsibility for partment because the role of traditional law
Disorder in Your Neighborhood enforcer is attractive. They typically don’t
Tolerance of crime is controlled by the com join to make friends with youth in high-crime
munity, not the police. When communities communities. For this reason (among others)
unite to demand a lower crime tolerance, the there is often a huge resistance to shifting an
police and the political system respond. entire agency to community policing. Com
munities working with the police must ac
Tolerance to crime is reinforced by informal
commodate a slow institutional change to
social control—neighbors talking to neighbors
ward community policing.
and agreeing on what they tolerate and what
they don’t. When neighbors withdraw be If your police department has done little in
cause of increasing fear of crime (see Chapter establishing community policing, start with
3), these informal controls break down. The “communication” and work toward “col
community then depends on formal social laboration.” Find officers who will be liaisons
controls—the police—to control crime. Any within the department. Find out what their
community planning to reduce crime must in values are. If they want to reduce 911 calls
corporate into its strategy a process of in and you want graffiti removed from buildings,
creasing contact among neighbors and devel show how community action and graffiti re
oping an action plan that acknowledges the moval will reduce 911 calls. As you commu
neighborhood’s responsibility for eliminating nicate, you will begin to cooperate, then co
disorder and incivilities. ordinate, and finally collaborate. Consider
developing a simple card or survey form that
Strategy 2. Learn How the Police residents and businesses can use to report
Are Implementing Community signs of disorder (abandoned cars, broken
Policing street lights, loitering, vandalism, panhandling,
Everyone understands that emergency calls to etc.).
the police are important. But police also need
Tip: If you want the police to pay
to institutionalize the reality that increasing attention, give them what they
disorder leads to more serious crime and want. Most police departments
more 911 calls, which lead to more disorder. need information—not anecdotes,
Addressing disorder is an excellent way to but hard facts about who, what,
where, and when. If a neighbor
reduce 911 calls. hood is cooperating by providing
Community policing is designed to form part specific, concrete information about
the type of crime and the perpetra
nerships with the community to address dis tors involved, the police will be in a
order. But to do this, the shift to community much better position to coordinate
policing requires “re-engineering” the police responses to those problems.
department as an organization. Ideally, offi
cers from the chief executive down to the
newest recruits will promote the approach re
gardless of the unit to which they are as
signed. But most police officers join a de
69
WORKING WITH THE POLICE
Strategy 3. Work on Disorder streets and the patrol cars drove by, the
Together neighbors would applaud. Soon the police
Disorder, like loitering, graffiti, vandalized va stopped and began talking with the residents.
cant buildings, litter, and loud noise, is often They shared information. The police came by
not measured and tracked. As a result, it more. The neighbors learned their names:
does not receive the attention it should from Sgt. Dempsey, Officer Santiago. The officers
either the police or the community. If disor cooperated by keeping their eye on the cor
der remains unchecked, attention to the ners during the day and the nights the neigh
symptoms of disorder will have little effect. bors were not out.
Communities must address disorder if they Eartha and the residents soon learned that the
want to reduce crime and fear of crime. drug dealers they were chasing were supplied
Pick a manageable problem and begin a pro from a house on the middle of the block.
cess with the police for solving that problem. They began working with the police by shar
Remember, collaboration requires separate ing that information and coordinating a strat
responsibilities. The community must be in egy to solve the problem. They agreed that
dependently responsible for some part of the the police would do what they did best and
solution. They can organize graffiti removal begin the process of arresting the dealers.
teams or confront drug dealers on the street The neighbors would continue the vigils and
corner. Any of the tools suggested in this give them information.
manual will work. The police should do their That simple beginning led to an area-wide
part. That might be surveillance and a strategy to map all crime and begin develop
buy/bust on a crack house supplying drugs to ing joint solutions to the community’s prob
the corner drug dealers. Together you can lems. Eartha started an after-school program
reach a common goal: reducing crime. in the local church and began a community
garden with the youth. The police helped by
Putting It All Together linking her up with the Department of Parks
A woman named Eartha Kinnard, a daycare and Recreation and the Wilmington Horticul
worker for the local YMCA, lived in the tural Society. The Department of Real Estate
Hilltop section of Wilmington, Delaware. Her closed down a neighborhood bar and pur
neighborhood was overrun with street corner chased it to convert it for other purposes.
drug dealing. She felt the police did nothing Eartha’s story is similar to many other neigh
except cruise through the neighborhood every borhood success stories. She began by en
once in a while. couraging the neighborhood to take responsi
Eartha organized the neighbors, and together bility for the problem. The neighbors
they went out on a street corner and chanted attracted the attention of the police by ap
anti-drug slogans. They did this two times a pealing to their values at the time—reducing
week, every week. The police, who did only 911 calls for service. They began to cooper
traditional policing, took notice. The number ate, coordinate, and then collaborate on the
of shootings and calls for service were down issues of disorder, those issues that caused
in that area. When the neighbors were on the crime. Without planning it, a city police de
70
WORKING WITH THE POLICE
partment with a traditional approach to polic Wilson, J. Q., and G. Kelling. (March
ing was suddenly engaged in community po 1982). “Broken Windows.” Atlantic
licing in that neighborhood. Monthly. Pp. 29-38.
Organizations
References Bureau of Justice Assistance (BJA)
Office of Justice Programs
Publications U.S. Department of Justice
Community Policing Consortium. (1994). BJA Clearinghouse
Understanding Community Policing: A P.O. Box 6000
Framework for Action. U.S. Department of Rockville, MD 20850
Justice, Bureau of Justice Assistance. 800- 800-688-4252
688-4252. http://www.ojp.usdoj.gov/BJA
National information clearinghouse.
Connors, E. F., and Barbara Webster.
(1993). “Police Methods for Identifying
Chicago Alliance for Neighborhood Safety
Community Problems.” American Journal
Warren Friedman, Director
of Police. Vol. XII, No. 1.
28 East Jackson, Suite 1215
Greene, J. R., and S. D. Mastrofski, eds. Chicago, IL 60604
Community Policing: Rhetoric or Reality. 312-461-0444
(1994). New York: Praeger Publishers. Community organizing, problem solving with
800-225-5800. the police.
Goldstein, H. (1990). Problem-Oriented
Policing. New York: McGraw-Hill, Inc. Citizens Committee for New York City, Inc.
212-412-0100 or 800-722-4276. Felice Kirby
305 Seventh Ave., 15th Floor
Rosenbaum, Dennis P., ed. (1994). The New York, NY 10001
Challenge of Community Policing: Testing 212-989-0909
the Promises. Thousand Oaks, California: Community organizing, joint citizen/police
Sage Publications. 805-499-0721. training, and problem solving.
Sparrow, J., M. H. Moore, and D. M. Ken
nedy. (1990). Beyond 911: A New Era for Community Policing Consortium
Policing. New York: Basic Books. 212- 1726 M St., N.W., Suite 801
593-7057 or 800-242-7737. Washington, DC 20036
800-833-3085
Trojanowicz, R., and B. Bucqueroux.
http://www.communitypolicing.org/
(1990). Community Policing: A Contem
Community policing training and technical as
porary Perspective. Cincinnati: Anderson
sistance.
Publishing Company. 513-421-4142 or
800-582-7295.
Institute for Law and Justice
Ed Connors
71
WORKING WITH THE POLICE
72
W O R K I N G W I T H C O U R T S A N D P RO S E C U T O R S
Chapter 10
Working with
73
WORKING WITH COURTS AND PROSECUTORS
74
WORKING WITH COURTS AND PROSECUTORS
The problem is most acute for defendants for Careful analysis of court-related problems is
whom probation should be linked to atten very important. Sometimes the court is unre
dance at an alcohol or other drug treatment sponsive to community concerns because of
program. officeholders’ personal priorities, idiosyncra
sies, or beliefs. Solutions in these situations
Taking Inventory will require changing attitudes and resetting
The first step in improving court and prose priorities. In other instances, problems with
cutor responsiveness to your neighborhood’s case outcomes or case processing may be
needs is to take stock of the issues and re rooted in the way the system is organized, re
sources. In addition, court watch programs quiring changes in how the court operates.
(described later on) are particularly valuable
Tip: Be specific when stating your
for helping you clarify and document court concern. A statement like, “Mis
related problems. As you analyze your local demeanor cases always get proba
issues, here are some of the questions you’ll tion,” will not get much attention.
need to address: But try, “95 percent of misde
meanor drug possession convic
¤ What specific crimes are of concern to tions result in unsupervised proba
the community (for example, prostitu tion.” This gives people a hard fact
on which to focus.
tion, drug crimes, drunk driving, graf
fiti, public drunkenness, panhandling,
loitering, etc.)? Interviewing Court Officials and
¤ How are arrests in these cases proc Other Personnel
essed? Once you have begun to clarify which issues
¤ Who is responsible for prosecution at are of greatest concern to the community, you
each step? will want to interview officials responsible for
¤ What problems are there in processing court operations. These officials can help
these cases? For example, are cases identify problems and causes and can later
frequently dismissed or charges re assign responsibility for making improve
duced? Is there a lack of meaningful ments. You will also want to get independent
sanctions after conviction? assessments from others who are knowledge
Dissatisfaction with the court may be related able observers or participants in court pro
to court outcomes, court processing, or ceedings but who do not have administrative
both. Dissatisfaction with court outcomes responsibility (for example, public defenders,
includes concern about too many cases dis victim advocates, other service providers).
missed or downgraded, or failure of the court People to interview include:
to impose meaningful sanctions. Court proc
¤ Chief administrative judge of the court
ess dissatisfaction includes long delays in re
¤ Presiding judge of the criminal court (if
solving cases, failure to notify victims of what
multi-divisional court)
jurors’ time.
¤ Head of public defender agency
75
WORKING WITH COURTS AND PROSECUTORS
¤ Criminal law professor of nearby law ¤ Encourage courts and judges to adopt
school (if one nearby) new approaches and programs.
¤ President of local bar association or
trial lawyers affiliate Strategy 1. Influence the Courts
¤ Other judges or assistant prosecutors With the exception of juvenile court hearings,
as available most court proceedings are open to the pub
¤ Major court service providers (such as lic. You can influence the courts and empha
drug treatment, social services, juve size the importance of a case to your commu
nile diversion, or others depending on nity simply by showing up, either as a group
your community’s particular concerns) or through a court watch program. And you
Questions to ask include: can use other tactics to bring judges “down
from the bench and into your neighborhood.”
¤ What is their role in the court process?
¤ How do they view the significance of ¤ Bring Groups into Arraignment
the community problems with which Hearings. These hearings are open
you are concerned? to the public. In fact, when a suspect
¤ What actions can they take or recom is apprehended, you can even follow
mend that the courts take to meet the police car down to the courthouse
community concerns? to the arraignment. Judges will often
¤ What further actions should the com be influenced to deny bail when
munity take? groups of concerned citizens take the
initiative to show up at arraignment
hearings. This technique has been
Strategies and Tactics used successfully in many communi
This section explains several strategies for ties, including Palo Alto, California.
making courts and prosecutors more aware ¤ Develop a Court Watch Pro
of—and responsive to—your neighborhood gram. One of the most effective
concerns. Strategies and tactics for influenc ways to hold courts and prosecutors
ing the courts, prosecutors, and probation accountable is to undertake a court
and parole can be done in almost any juris watch program. Court watches use
diction with volunteers and very little money. volunteers who sit in the courtroom,
Strategies to encourage innovation and carefully observe court proceedings,
change the system—for example, by devel and record and report on court ac
oping community courts or drug courts—are tions. Effective court watch volunteers
more ambitious and expensive, but are use a checklist or follow specific
showing positive results in many communities. guidelines. Court watch programs
serve several purposes. First, the
These are some strategies you can use:
mere presence of trained, organized
¤ Influence the courts.
observers in the courtroom reminds
¤ Influence the prosecutor.
judges and prosecutors of the impor
¤ Use the probation and parole system.
tance the community places on how
cases are handled. Second, court
76
WORKING WITH COURTS AND PROSECUTORS
77
WORKING WITH COURTS AND PROSECUTORS
ready on probation and parole. Don’t over diction does not have this option, push
look the fact that probation and parole offi for it.
cers have enormous power. They can influ ¤ Encourage Police/Probation
ence judges in setting conditions of probation, Teamwork. Don’t assume that po
and with persons under their supervision they lice and probation departments are
can conduct searches, require office visits, well coordinated. Push for better in
order drug tests, and initiate revocation pro formation sharing, special po-
ceedings for violations of conditions. lice/probation teams and task forces,
programs and special operations that
¤ Find Out Who Is on Probation or
get probation officers out from behind
Parole. You can help get probation
the desk and patrolling with police,
and parole violators back off the
and other tactics that get police and
streets, but you must first know who
probation working together to target
they are. Get the police to run checks
serious probation and parole violators.
to find out who is on probation.
Project “Night Light” in Boston is a
¤ Push for Stay-Away Orders and
model of police-probation officer co
Other Conditions. Find out the
operation.
names of your local probation or pa
role officers. Ask what conditions of Strategy 4. Encourage Courts and
probation or parole have been im Judges to Adopt New Approaches
posed. For most crimes, the proba and Programs
tion officer can seek a stay-away or
Several promising types of court and prose
der, requiring probationers who do not
cutor reforms are taking place around the
live in your neighborhood to stay out,
country. Many of the approaches featured
and drug dealers can be ordered not
here involve significant system changes and
to loiter there.
will require long-term planning and consider
¤ Observe and Report Violators.
able resources.
Now that you know who is on proba
tion, the conditions they must meet, ¤ Community Courts. As the number
and the probation officer who is in of arrests increases, criminal courts
charge, report the violations you ob can become overly bureaucratic—
serve. more concerned with disposing of
¤ Ask for Intensive Supervised cases than in giving personalized
Probation. If your probation de attention to minor cases or in
partment has intensive supervised pro responding to community problems,
bation, ask that chronic offenders be which they may see as the role of the
placed under it. Intensive probation police or city government. Community
involves frequent personal contacts courts are designed to remedy this
with the probation supervisor and of situation by focusing on the community
ten includes the use of electronic problems reflected in the cases
bracelets and drug tests. If your juris brought to court.
One of the most successful com
munity courts is the Manhattan
78
WORKING WITH COURTS AND PROSECUTORS
79
WORKING WITH COURTS AND PROSECUTORS
ting bail and conditions of release. If for that court—which already included
your jurisdiction does not conduct members representing the commu-
pre-trial drug testing, push for it. nity’s ethnic makeup—also began
Learn more about the Department of providing translation services for the
Justice’s Drug Use Forecasting (DUF) court, permitting it to better determine
program and the drug testing program which cases called for more active in
operated by the Pretrial Services tervention.
Agency in Washington, DC, which is ¤ Community Involvement in Sen
also pilot-testing a drug court. tencing. The restorative justice
¤ Intensive Community Supervi movement throughout the country is
sion for Juveniles. One of your exploring new ways to increase com
community’s major concerns may be munity involvement as well as ensure
the “recycling” of youth through the ju offender accountability and the provi
venile court system. Commitment to a sion of services. As part of the Ver
detention center or group home may mont restorative justice effort, for ex
be inappropriate or impossible be ample, large numbers of offenders are
cause of crowding. As a result, these sentenced by groups of citizens.
youth are back on the streets, with lit
tle or no supervision or attention to Tip: If you want to change the sys
personal or family needs. To break tem by undertaking any of these
long-term approaches, strive for a
this cycle with young teenagers, the very broad base of support. Set up
Children at Risk (CAR) project in an advisory board or similar, per
several cities assigned a special manent structure to ensure ongoing
worker to provide intensive case community influence on court op
erations and programs.
monitoring. The caseworkers were
able to avoid interrupting services al
ready being provided to families, and
judges received assurance that the Putting It All Together
youth would be closely supervised. In The Manhattan Community Court started
effect, these case workers assumed with a growing realization among local busi
most responsibilities normally assigned nesses that relatively minor street crimes—
to intensive supervision probation offi prostitution, drug possession, public drunken
cers. ness, panhandling, vandalism, loitering, etc.—
¤ Citizen Advisory Panels. Some were adversely affecting business in the Times
courts (such as in Hudson County, Square area, but were not being addressed
New Jersey) have established citizen by the city’s criminal justice system. Meetings
advisory panels to deal with cases that among business owners, criminal justice plan
might otherwise be rejected because ners, New York City court leaders, and for
of heavy caseloads. This problem in mer city officials led to an initiative by the
Hudson County was especially acute Fund for the City of New York to raise
in the juvenile court. The citizen panel money for a new misdemeanor arraignment
80
WORKING WITH COURTS AND PROSECUTORS
court. Located within the mid-town Man performed many other beautification tasks. In
hattan business district, the court was de addition, the court’s success has drawn other
signed to address the identified quality-of-life social service agencies to locate at the court
problems in a systematic manner. The Ad house to better identify individuals who are
ministrator of the Courts in the city backed not offenders but who need services. These
the plan by assigning a judge and necessary include homeless persons and victims of do
support staff to the new court. Day-to-day mestic violence. Perhaps the greatest symbol
direction of the court is under the manage of the court’s success is a plan to establish a
ment of a small group of Fund employees and second community court in a working-class
consultants, who are paid through a contract community in the Red Hook section of
with the City of New York. Brooklyn, New York.
Community participation in the operation of
the court continues through bi-monthly meet
ings of a court advisory board, which is com References
posed of business leaders, service providers,
community activists, and other local repre Publications
sentatives. As a result, the court is now a fo American Probation and Parole Association.
cal point for community groups to voice their (Winter 1996). Teen Courts: Empowering
concerns about law enforcement priorities. our Youth. Lexington, KY: Council of State
Other important community ties are main Governments. 606-244-8205.
tained by the court’s extensive reliance on Court Watch Manual: A Citizen’s Guide to
community-based and government agencies Judicial Accountability. (1981). Wash
to provide services to arrestees who need ington: Washington Legal Foundation.
help. Services include, for example, health
counseling provided by student nurses from a Criminal Court Monitoring Handbook.
local university, drug treatment, and employ (1996). New York: The Fund for Modern
ment counseling. Courts.
The court has succeeded on many levels. Drug Night Courts: The Cook County Ex
First, the court disposes of approximately 75 perience. (1994). Washington: U.S. De
percent of all cases brought before it at ar partment of Justice, Bureau of Justice Assis
raignment, many of them within six hours of tance. 800-688-4252.
arrest. Expensive jail time and other costs for “Special Drug Courts: Program Brief.” (No
arraignment in the centralized courts are vember 1993). Washington: U.S. Depart
thereby eliminated. Through a combination of ment of Justice, Bureau of Justice Assistance.
swift and certain punishment and services to 800-688-4252.
those in need, quality-of-life crimes have been
Tracy M. Godwin, et al. Peer Justice and
reduced by almost half in the Times Square
Youth Empowerment: An Implementation
area. Offenders who are sentenced to com
Guide for Teen Court Programs. (1996).
munity service have dramatically reduced
Washington: U.S. Department of Justice, Of
graffiti in the area by painting over it and have
81
WORKING WITH COURTS AND PROSECUTORS
fice of Juvenile Justice and Delinquency Pre Information on establishing and operating
vention. 202-307-5940. drug courts.
Drug Courts Program Office Office of Justice Programs (OJP) Drug Court
Office of Justice Programs, U.S. Department Clearinghouse
of Justice Operated by American University
633 Indiana Ave., N.W. Justice Programs Office, School of Public
Washington, DC 20531 Affairs
202-616-5001 4400 Massachusetts Ave., N.W.
http://www.ojp.usdoj.gov/dcpo/welcome.html Brandywine Suite 660
Washington, DC 20016
MADD (Mothers Against Drunk Driving) 202-885-2875
National Office http://www.american.edu/academic.depts/spa
511 E. John Carpenter Freeway, #700 /justice/
Irving, Texas 75062
214-744-6233 or 972-869-2206 State Justice Institute
Advocacy, court watch. Liv Vines
1650 King St., Suite 600
McMinnville (Oregon) Community Peer Alexandria, VA 22314
Court 703-684-6100
http://www.ncn.com/~snews/peerct/mcminvll. http://www.clark.net/pub/sji/home.htm
htm Assistance and funding to state courts (crimi
nal, civil, juvenile, family, and appelate).
National Association of Drug Court Profes
sionals Willamette University Legal Access Project
Judge Jeffrey Tauber 900 State St.
901 N. Pitt St., Suite 300 Salem, OR 97301
Alexandria, VA 22314 503-370-6300 or 503-375-5456
703-706-0576
82
WORKING WITH COURTS AND PROSECUTORS
http://www.willamette.edu.org/cop/communit
y_partnership.html
Student victim assistance project, court
watch.
Endnote
1 Ina few areas, a police officer or juvenile
probation officer may be the prosecutor, at
least in the initial stages of the case.
83