Successful Collaborative Programs: Improving the Criminal Justice System.












                    Successful Collaborative Programs:
                   Improving the Criminal Justice System


              Results From State and Local Program Workshops

                             Sponsored by the
                  State Reporting and Evaluation Program
         Bureau of Justice Assistance, Office of Justice Programs
                        U.S. Department of Justice



                                 May 1995









                              Prepared by the
                Justice Research and Statistics Association
                      444 North Capital Street, N.W.
                                 Suite 445
                           Washington, DC  20001
                              (202) 624-8560Acknowledgements


This report ia a product of a cooperative effort by the States and the Bureau of Justice
Assistance as part of the State Reporting and Evaluation Program, which is coordinated by the
Justice Research and Statistics Association.

The staffs of the Office of Program Assessment and Support and the Memphis Police
Department contributed to the coordination and implementation of the workshop that is
discussed in this publication.  A special thanks to Charles W. Burson, Attorney General of the
State of Tennessee; Jim Rout, Mayor of Shelby County, Tennessee; and Walter Winfrey,
Director of Police Services for the Memphis Police Department for delivering their welcoming
addresses.  Special acknowledgement is made to the outstanding moderators of the working
meeting:  Kim English, Director, Office of Research and Statistics, Colorado Division of
Criminal Justice, and Alison Perkins, Program Manager, State and Local Assistance Division,
Bureau of Justice Assistance.  Important contributions to the success of the meeting were made
by Janice Ford Griffin, Deputy Director, JOIN TOGETHER, Boston, Massachusetts.

The State Reporting and Evaluation Program relies on the expertise of the States to insure the
success of workshops and publications.  The following individuals contributed their knowledge
and time to make this workshop and publication a success:  Todd Brighton, Program Specialist,
State and Local Assistance Division, Bureau of Justice Assistance; Jill Kateman, Program
Analyst, Evaluation and Technical Assistance Division, Bureau of Justice Assistance; Ruth
Cardella, Consultant; and Serena Fisher, Consultant.

The Justice Research and Statistics Association prepared this document under the direction of
Joan C. Weiss, Executive Director.  The following JRSA staff compiled and edited the
information for this report under the supervision of Assistant Director for Special Projects
Kellie J. Dressler:  Andrea G. Richards, Program Assistant; Andra Tisi, Program Assistant;
Elizabeth Schrage, Intern; and Ann Mulcahy, Intern.Table of Contents


Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  1

Perspectives on Collaboration and Improving the Criminal Justice System  3
      JOIN TOGETHER . . . . . . . . . . . . . . . . . . . . . . . . . .  5
      The "Three C's" of Crime Prevention Programs. . . . . . . . . . .  7

State and Local Programs:  Focus on Process . . . . . . . . . . . . . .  9
      Maine:  The Partnership Between the University of Maine and Law
              Enforcement Agencies. . . . . . . . . . . . . . . . . . . 11
      North Dakota:  State's Attorney Management System (SAMS). . . . . 15

Successful Collaborative State and Local Programs . . . . . . . . . . . 21
      Alaska:  Community Problem Solving. . . . . . . . . . . . . . . . 23
      Arkansas:  Supervised Treatment and Education Program (STEP) Court 29
      California:  Operation Revitalization (WEED & SEED) . . . . . . . 34
      Colorado:  Broomfield Police Department Senior Liaison Program. . 42
      Florida:  S.A.F.E. Program. . . . . . . . . . . . . . . . . . . . 48
      Kansas:  Hiawathans Offering Positive Environments (HOPE) . . . . 53
      Louisiana:  CODE 6:  A Collaborative Effort To Fight Violent Crime 59
      Massachusetts:  Triad and Community Policing:  The Massachusetts Model 64
      Missouri:  Jackson County Drug Abatement Response Team (DART) . . 71
      New Jersey:  Police Community Partnership Program . . . . . . . . 77
      Oregon:  Family Violence Intervention Steering Committee. . . . . 82
      Pennsylvania:  Domestic Abuse Response Team (D.A.R.T.). . . . . . 89
      Puerto Rico:  Minors Diversion Program. . . . . . . . . . . . . . 93
      South Carolina:  Fairfield County Sheriff's Success Academy . . . 99
      Tennessee:  Weed & Seed . . . . . . . . . . . . . . . . . . . . .106
      Tennessee:  West Tennessee Regional Drug Prosecution Unit (RDPU).110
      Texas:  Safe Haven Program:  Operation Weed & Seed. . . . . . . .114

Workshop Participants . . . . . . . . . . . . . . . . . . . . . . . . .121
Introduction


This publication reports the results of the Bureau of Justice Assistance State Reporting and
Evaluation Program State and Local Programs Working Meeting:  Successful Collaborative
Programs:  Improving the Criminal Justice System held February 20-22, 1995 in Memphis,
Tennessee.  This meeting brought together over 50 State planners and local practitioners as
well as researchers, analysts, and law enforcement officers from 16 states who have previously
been or currently are involved in implementing and/or evaluating programs designed to
improve the criminal justice system through successful collaborations.

This publication identifies and documents programs that focus on the successful collaboration
between agencies to improve the criminal justice system at the State and local levels.  The first
section of the publication presents perspectives from two national experts.  The second section
of the publication presents two process-oriented program presentations, and the final section
documents the State and local programs that were presented at the workshop.              Perspectives on Collaboration and Improving the
                          Criminal Justice SystemJOIN TOGETHER


Janice Ford Griffin is the Deputy Director of JOIN TOGETHER, a non-profit organization
based in Boston, Massachusetts that serves as a national resource for communities fighting
substance abuse.

JOIN TOGETHER is committed to assisting communities in the development and
implementation of comprehensive, inclusive strategies to address substance abuse and its
related problems.  Comprehensive long-range strategies include prevention, treatment, law
enforcement, and economic development.

Substance abuse is a complex problem that has resulted in community elements blaming each
other.  Community segments must develop new alliances and seek creative ways to address the
substance abuse-related problems of the 90's.  Community-wide strategies must include
neighborhood groups, clergy, schools, parents, law enforcement, health and social service
providers, businesses, media, government, and others.  People support what they help create. 
Strategies created by a few will not be supported by many.  Successful strategies embrace the
concept of "doing with, not doing for."

Comprehensive, collective strategies will address community priorities, as opposed to
sophisticated theoretical models.  All communities have macro issues that are easily determined
by consensus.  Micro issues are neighborhood specific and must be addressed simultaneously
to ensure that everyone can take ownership of the effort.  "We have to come to some mixture
of addressing the macro and micro issues.  There are four areas that can help to do that.  (1)
Does the program, neighborhood, and city have knowledge and activity that can help to prevent
drug use?  (2) Is quality, appropriate, treatment accessible in the neighborhood and also for the
city at-large?  (3) Does the program help to eliminate drug trafficking and provide safety for
families?  (4) Is the program known to the business community?  Does the business community
support it?  Are they willing to create jobs to make the area one that is 'jobs friendly'?"  A
flexible, dynamic interplay of leadership is necessary to implement and maintain the variety
of strategies that are required by the complexity of substance abuse-related issues.

"When you involve people who are part of city government, they can help point the way for
new relationships that can come out of these activities and relationships that will yield a benefit
for everyone."  Some important collaborators in local government include:  health departments
for treatment components; parks and recreation for youth activities; personnel/human relations
for the dissemination of information to adults; public works for code violations incident to
trafficking; and the police for public safety.

Some problems associated with evaluation include:

          objectives inconsistent with the community's priorities;
          community residents untrained for employment in evaluation processes;
          culturally insensitive and inappropriate evaluation methods; and
          evaluation methods designed with funders' objectives, which tend to reflect their
           perspectives.

"Train community people to be involved in evaluation.  If you can in some way train some of
the people in the community to help do evaluation...they develop a skill, and you are using
people who can get information that (would)...not be given to you."  The "ultimate evaluation
is in job growth, job-friendly environment(s), and (during)...elections."

Communications and media include information sharing among community partners, as well
as the transmission of newsworthy information through news and popular media.  Newsletters,
community bulletin boards, and radio talk shows are vehicles to help inform the community
of opportunities to participate in community strategies.  Editorial board meetings, op-ed
articles, and letters to the editor should be integral pieces of an overall strategy to inform and
to advocate various issues.  "Hold the media accountable for your programs."  The journalistic
credo, "if it bleeds, it leads," is as much an impediment to success in changing some
neighborhoods as are more direct and obvious problems.

Elected officials are most accountable when there are continuing relationships and
responsibilities around the community's issues.  Testimony before local government councils,
State legislative panels, and Congressional panels should be objectives for participants in
community initiatives.  Community groups should request elected officials to assign staff
members to follow specific issues and to provide breaking information and funding
opportunities quickly and regularly.  It assures that the officials' staffs are knowledgeable about
those issues, improves the ability of the staff to represent the issues, and dramatically increases
the promptness with which information reaches constituents.

"Collaboration is what is absolutely necessary in order to make a change."  Community groups
should be aware of groups with which to collaborate:  YMCA/YWCA, Boy Scouts, Girl
Scouts, Chambers of Commerce, Private Industry Councils, Community Colleges, Cable TV
Access Stations, Fighting Back Projects, CSAP Community Partnerships, National Family
Partnerships, Empowerment Zones/Enterprise Communities, HUD Drug Elimination in Public
Housing, Job Training Partnership Act Programs, Americorps, and many others.  Finally, there
is a continuing challenge to be creative and developmental.  "You have to be developmental
in what you do.  The wheel has to be modernized.  If you don't want something to wear out,
you have to do something developmental so that it doesn't wear out.  There has to be constant
change, updating, and development."  Strategies must be continuously reexamined and refined. 
The world is constantly changing, and successful programs will often be one step ahead of the
change.

"As the name (of my organization) implies...we are going to have to join together in order to
make strides against the difficult problems that confront us.  We have to all come around the
table."The "Three C's" of Crime Prevention Programs


Charles W. Burson is the Attorney General for the State of Tennessee.

Attorney General Burson emphasizes that the focus of the workshop is on local programs
tailored to the specific problems of their communities, not on established national models.  The
programs have three themes or the "Three C's."  The first of these is community where the
problems and the opportunities to solve them exist.  The second is the connection between the
people in the community and the support and enforcement resources.  The final theme is the
collaboration among cities, counties, State enforcement agencies, and Federal government
enforcement agencies.

The Bureau of Justice Assistance's Edward Byrne Memorial State and Local Law Enforcement
Assistance Formula Grant Program gives financial assistance to the states and local
communities, and they are ready to accept these grants to initiate productive and successful
efforts to combat drug abuse and violence in their communities.  The Tennessee Office of
Program Assessment and Support and corresponding offices in each state are important to these
crime-fighting efforts.  A collaborative effort is necessary to fight drug abuse and violence, and
this is made possible through local, State, community, and financial leadership.

Fighting violent crime and drug abuse is the number one agenda of States' Attorney Generals. 
The problems of drug abuse and violent crime are so large, where is the national solution or
model to solve them?  This workshop looks at what is working in local communities, and
assessments show that there is local success.  Crime must be fought on the level at which it
occurs.  There is no national or State crime.  Crime is present in the streets, households, and
neighborhoods of all local communities.                State and Local Programs:  Focus on ProcessMaine


The Partnership Between the University of Maine and Law
  Enforcement Agencies


Statement of the Problem

Community policing is receiving increased attention and visibility on the national, State, and
local levels.  However, it is a topic and process subject to misinterpretation and uncertainty. 
While many people equate community policing with simply "putting police back on the beat,"
it is actually a complex reorganization of policing priorities, relationships with citizens and
elected officials, and formal and informal relationships with other public and nonprofit agencies
serving the human and social needs of citizens.

While numerous Maine jurisdictions have become interested in implementing community
policing, there is a dearth of information and assistance available to them.  Similarly, some
opportunities for training in implementing community policing exist in Maine, but they are not
widely known and are frequently unavailable to smaller jurisdictions without significant
resources.  This is particularly true of the needs assessment phase of implementing community
policing.

Conducting a survey of citizen perceptions and priorities is a crucial component of community
policing.  However, successfully fielding a survey of citizens which will produce a valid,
reliable response is a complex task requiring knowledge and experience in social science
survey methodology, including instrument preparation, sampling, and analysis.  These skills
are frequently unavailable to law enforcement officials in jurisdictions interested in instituting
community policing.


Goals and Objectives

The primary goals of the State of Maine collaboration are (1) to provide technical assistance
to local law enforcement agencies for implementing community policing and (2) to facilitate
communication between citizens and law enforcement agencies.  This is one of the goals
because according to David Giampetruzzi, coordinator of the overall project, "the alliance
between community residents and police (is) essential to making neighborhoods safe and drug
free."  To achieve those goals, the University of Maine - Law Enforcement partnership has
established the following objectives:

          provide citizen input for community policing needs assessments;
          provide graduate public administration students a setting for applied research;
          foster closer partnerships between local government officials and law
           enforcement agencies; and
          develop a statewide survey tool for planning community policing initiatives.


Process Components

The principle investigator and project director is Dr. Jean Lavigne, Assistant Professor and
Director of Graduate Programs in Public Administration at the University of Maine, Orono. 
Dr. Lavigne is responsible for coordinating and overseeing each phase of the project.  The co-
principle investigator is Dr. Anthony Cahill, Associate Professor of Public Administration.  Dr.
Cahill provides assistance in survey and interview protocol design and administration and will
work on the other phases of the project as necessary.  Dr. Carolyn Ball is a consultant on the
statistical analyses and also meets with local law enforcement officials in the planning stages. 
The principle investigators will be assisted by graduate students assigned to the project.  The
local government contact is generally the Chief of Police or the Sheriff.  Often town/city
managers and members of the town/city council are involved in the planning stages.

During the first phase of this partnership, from January 1993 through June 1994, two major
tasks were undertaken.  First, a valid, reliable instrument was constructed which would measure
citizens attitudes and priorities towards law enforcement and crime and which could be used
in multiple communities.  The second task was to administer and analyze the survey in five
Maine communities and prepare reports for law enforcement and municipal officials in each
of the communities.

The specific elements involved were:

          to design a survey instrument and interview protocol for use in conducting
           community policing needs assessment;
          to identify the sampling frame to be used;
          to prepare analytic routines and code, enter, verify, and analyze the data from
           completed surveys;
          to publicize the project in the community; and
          to prepare and present oral and written reports for the community.

The graduate students in the Department of Public Administration provide data entry of
surveys, analyze data which is overseen by faculty members, and provide a complete report
of the findings.Results and Impact

Performance Measures

The expected results and performance measures were divided into three categories: 
community, law enforcement, and public administration students.  For the community, program
administrators hoped to publicize local law enforcement community policing initiatives, provide
three news releases, survey the community, target a response rate between 20 to 40 percent,
and facilitate communication between local government management and law enforcement
planning.  For law enforcement, the goal was to discover citizens' perceptions of law
enforcement officials.  For public administration students, the goals were to modify the survey
for each community within two weeks of the initial community meeting, develop research and
presentation skills, develop an understanding of local government and law enforcement
relationships, and process the survey within six weeks, including data entry, data analyses, and
preparation of the report.

Implementation Problems and Successes

Local law enforcement officials have been very satisfied with the survey reports. 
Implementation has been smooth.  The problem area has been coordination between informing
the news media and the timing of the mailing of the surveys.  This has been resolved in a
speedy manner.

Successes and Accomplishments

The project has successfully completed surveys for approximately 10% of the total population
of the State of Maine.  By June 30, 1995 it will have completed community policing surveys
for 15 local governments and one county.  One of the clear advantages of this partnership has
been the ability to collect common perceptions of citizens across the State.  Prior to this
endeavor, local communities prepared their own surveys.  However, many had no ability to
compare across communities.  The survey has provided for the State of Maine to use its scarce
resources most efficiently in targeting community policing initiatives.

Prospects for Replication

The prospects for replication are very good especially for States with a close association
between universities and communities.  The Department of Public Administration of the
University of Maine has been able to offer its students "real" research opportunities in a local
government setting.  The law enforcement agencies can benefit from the university faculty
expertise in research design.  The support of the Maine Justice Assistance Council was
instrumental in nurturing the program, and the State has benefited from the collaborative
agreement.


Contact Information

Jean Lavigne, Ph.D.
Director, Graduate Programs
University of Maine, Orono
5754 North Stevens
Orono, ME  04469
(207) 581-1877
(207) 581-3039 fax

David Giampetruzzi
Grant Program Administrator
Maine Criminal Justice Agency
93 Silver Street
Waterville, ME  04901
(207) 877-8016
(207) 877-8027 faxNorth Dakota


State's Attorney Management System (SAMS)


Statement of the Problem

North Dakota is one of the few states where county prosecutors have been assigned the
responsibility of reporting dispositions to maintain the Criminal History Records System
(CHRS) managed by the State Bureau of Criminal Investigation (BCI).  There is an elected
State's Attorney in each of North Dakota's 53 counties; 12 State's Attorneys work full-time
with offices located in the courthouse, and the remaining 41 are private attorneys who perform
the prosecutor duties on a part-time basis.  Prior to this project, few State's Attorneys used
prosecution management software or computer technology.  The lack of automation has made
completion of vital criminal history records time consuming, inefficient, and difficult to track
for completion.

The BCI and the North Dakota Association of Counties' computer arm, the North Dakota
Cooperative for Automation and Technology (NDCAT), came together to bring a State's
Attorney Management System (SAMS) to counties.  Using multiple sources, much of the
SAMS project was funded by Federal grants.  The standardized format of the data will allow
completion of the final phase of the SAMS project, electronic transfer of the data to the CHRS.


Goals and Objectives

The goal of the SAMS project is to implement a uniform case management system to reduce
the overall cost of maintenance and support to counties and, through automation of the county
State's Attorneys' offices, to develop a consistent, timely, and efficient manner of reporting
disposition information to maintain the CHRS in North Dakota.  Phase One identified the data
elements and the information to be shared with other criminal justice agencies and chose the
technology it will use.  The second phase involves development and implementation of the
software and training for SAMS users.  The final phase will see the electronic transfer of
disposition data from all 53 county State's Attorneys' offices to the CHRS residing on the
State's mainframe at the Information Services Division (ISD).
The project objectives include:

          gaining a thorough understanding of the data needs of the various justice
           agencies and how they can share data elements; 
          choosing a software package for prosecution case management and identifying
           the hardware platform;
          identifying the automation needs in the State's Attorneys' offices and
           coordinating their needs with the existing technology in the courthouse;
          facilitating the acquisition and installation of the equipment;
          identifying all training needs;
          connecting to North Dakota's Wide Area Network to access the CHRS and
           driving records abstracts at the State Department of Transportation; and
          making it possible for the State's Attorneys to share information with other
           agencies and electronically transfer data to the CHRS.


Program Components

The first phase of the SAMS project began in 1992 and was funded by a grant administered
by NDCAT from the Edward Byrne Memorial Grant Program.  A Justice and Public Safety
user group was formed including representatives from the State's Attorneys' offices, Sheriff's
Departments, courts, State justice agencies, BCI, and the Supreme Court.  They began
identifying the data elements and information areas that can be shared among criminal justice
agencies to improve the efficiency of the flow of information from arrest through disposition. 
The Supreme Court had already developed and distributed a courts package for IBM's mid-
range platform, the AS/400.  BCI had developed the Jail Administration and Booking System
(JABS), a PC-based jail management program used by Sheriff's Departments.  Until then, the
link between them had been untouched by automation. 

Representatives from the user group, along with other State's Attorneys, began to look at
commercial software for prosecution case management.  They also discovered the AS/400 was
the platform of choice because the courts were using it and over half the counties already had
access to an AS/400.  Funding sources were investigated, but it appeared the commercial
software was cost prohibitive for many counties.

BCI recognized the need to automate the link between the Sheriff's Department and the courts
and the importance of linking the State's Attorneys' offices to the CHRS.  They offered to use
a portion of the Bureau of Justice Statistics (BJS) grant received for criminal history record
improvement to write the prosecution case management software.

The second phase of the SAMS project began by forming a State's Attorney Information
System Work Group to develop the SAMS software application.  This group was made up of
State's Attorneys and staff from State's Attorneys' offices, courts, BCI, and NDCAT.  It was
funded by the BJS criminal history record improvement grant.

Initial implementation of the SAMS software included automation of the full-time State's
Attorneys' offices, which were chosen because they handle about 80% of the cases in North
Dakota.  Also, their physical location in the courthouse meant they had access to the AS/400. 
These counties also house the district judge chambers, so the group considered the potential
for sharing information with the courts.  A part-time State's Attorney site was also chosen to
test remote access.


Results and Impact

Performance Measures

Eleven full-time offices and one part-time office were automated in 1994-95, with much of the
funding for hardware and training coming from the Edward Byrne Grant Program.  Two sites
were funded by a Federal Criminal History Grant through BCI.

The Byrne grant will fund the continuation of phase two in 1995 by automating five additional
remote part-time State's Attorneys' offices.  The remote sites needing to use communications
to access the AS/400 will have access to the State's Wide Area Network (WAN).  While each
courthouse has a direct connection to the North Dakota Information Network (NDIN), ISD is
currently upgrading NDIN to include dial-up access to the network.  Scheduled for completion
by June 1995, access to NDIN will give all State's Attorneys' offices the capability to receive
data from the CHRS and the driving records abstracts at the State Department of
Transportation.

The 1993 legislature adopted two resolutions important to the SAMS project.  The first directed
the Legislative Council to "...study means of gathering data on the sentencing of all persons
convicted of a felony offense and all persons convicted of a misdemeanor in violation of North
Dakota Century Code Chapters 12.1-17. 12.1-20, and 14-07.1."  This section deals with assault,
sex offenses, and domestic violence.  The second resolution asked the Council to "...study the
present methods of collecting data within the criminal justice and quasi-criminal civil systems
in this and other states, and the desirability of implementing a system-wide data collection
process in North Dakota."  The findings and recommendations were to be reported to the 1995
legislature.

These resolutions led to the creation of a Criminal Justice Data Forum, which included
representatives of law enforcement agencies, prosecution, courts, corrections, human services
agencies, news media, computer services, local governmental entities, and others.  For more
than a year this forum examined criminal justice data issues and identified gaps in available
data.  The significance of this project is demonstrated by the importance the legislature is
placing on statewide information systems.
Implementation Problems and Successes

Two stumbling blocks were choosing the software application and the hardware platform. 
Constant changes in technology remain a challenge as this project continues.  Also, the lack
of technical expertise and support staff in the counties remains a concern to the project's
overall success.  One solution to this problem is extensive training of the existing staff. 
Another solution is to hire a person or group of people to serve as travelling trainers and
problem solvers.

One problem with the system was in its implementation.  The decision makers for the program
were States' Attorneys and other elected officials.  Their support staffs were not involved in
any decision making.  This approach was inappropriate because the support staff, who work
with the system, are finding it difficult to work with because they were not part of the planning
process, and the decision makers who were part of the planning process are not overly
enthusiastic about using the new system.  The decision makers need to impart to the support
staff the need to work with the system.

Even though disposition data is reported to the BCI by State's Attorneys' offices, the
interfacing of SAMS and the courts' computer system is a logical and efficient exchange of
data between prosecutors and courts.  By assigning responsibility for disposition reporting to
State's Attorneys rather than to the courts, the State has relieved the courts of that burden but
has also reduced the long-term benefits to the courts.  There is residual information
accompanying disposition data that would be helpful to the courts if it were readily available,
but it is not presently a function of the CHRS.  The courts, however, should not have to rely
on the criminal history record system for information on their own activities.

Successes and Accomplishments

At this time, 11 of the 12 full-time State's Attorneys' offices are automated.  The pilot site for
a remote location has also been successful.  The State's Attorney is remotely accessing the
SAMS software on the AS/400 in the courthouse.  All of the sites have received training on
the SAMS application and Office Vision/400, the AS/400 word processing package used as the
editor for SAMS.  The lack of Management Information Systems staff in the counties prompted
the inclusion of AS/400 system operations training in the project.

NDCAT continues to support the project through project administration and technical support. 
A help desk has been established to answer technical questions (e.g., backing up the system,
communication problems, and printing problems).  BCI continues to support the project by
providing the application training and maintenance of the SAMS software.

BCI submitted a grant application to the National Criminal History Improvement Program,
which focuses primarily on integrating or interfacing information systems already in place or
being developed/proposed with the CHRS.  Funding for the continuation of the SAMS
installations is included in the grant request.

Prospects for Replication

According to Leana Jacobsen, Technical Coordinator of NDCAT, "Although North Dakota is
one of only a few states where prosecutors are required to report dispositions for criminal
history maintenance, many of the concepts of this project are suitable for replication."  The
relationship between NDCAT and the BCI enabled several related projects to be accomplished
by State and local government working together.  Because of these collaborative efforts, the
opportunity existed to capitalize on available funding sources.


Contact Information

Leana Jacobsen
Technical Coordinator
North Dakota Cooperative for Automation
  and Technology (NDCAT)
P.O. Box 417
Bismarck, ND  58502
(701) 258-4481
(701) 258-2469 fax             Successful Collaborative State and Local ProgramsAlaska


Community Problem Solving


Statement of the Problem

The State of Alaska consists of 586,412 square miles with 10,686 miles of coastline.  There
are only 5,612 total roadway miles of which approximately half are currently hard surfaced. 
The population of the State is 599,200 with 60% of the people living in the urban areas of
Anchorage, Fairbanks, and Juneau.  The remaining 239,680 people reside in the vast rural area
of the State.  In this area there are over 225 native villages ranging in population from less
than 100 to nearly one thousand, which require public safety services.  These are villages
where there are little or no medical, educational, police, or social services professionals.  These
isolated communities are only accessible by air or water transportation, and reaching them can
be delayed as a result of adverse weather and runway conditions.  Over the past five years the
Department of Public Safety, Division of Troopers has had an average of 258 commissioned
Troopers to provide public safety services for the entire State.

In the early 1980's, as a solution to the disproportionately higher rate of crime and accidental
deaths in the villages in comparison to the urban communities, the Alaska State Troopers
introduced the Village Public Safety Officer (VPSO) program into rural villages.  The program
was designed to train and employ individuals residing in the villages to provide initial response
to public safety emergencies in the areas of law enforcement, medical assistance, search and
rescue, and fire protection.  The number of VPSOs and villages where the program was
established has fluctuated from year to year as a result of changes in the funding from the State
legislature.  An average of 94 officers have handled almost 10,000 calls for service each year. 
The presence of these officers has had a significant impact on improving the quality of life in
the participating villages.

During the same period, in response to a decline in health and safety attributed to the
widespread abuse of alcohol in these remote villages, State legislation was passed which
allowed local communities to determine the level of restriction desired on the sale, possession,
and consumption of alcohol.  These are known as "Local Option" laws.  In villages which
chose to control or totally ban alcohol, for a period of time the quality of life improved.  As
a result of the "Local Option" laws and the Village Public Safety Officers, there are less violent
crimes, domestic violence, accidental deaths, fire related deaths, and drownings.

As time passed, alcohol bootlegging became a common practice, and with the increasing
importation of illegal drugs to these remote villages it was apparent that law enforcement alone
could not solve the quality of life problems.  Again, violent crime and domestic violence
associated with alcohol and drug abuse were on the rise.  The people residing in these remote
villages became increasingly frustrated with the rising crime.  As frustrations grew over law
enforcement's failure to provide a solution, village leaders increasingly voiced their
dissatisfaction with State government.

It became clear that the villages needed to create and maintain community interest in
identifying local problems and finding solutions in a partnership with VPSOs and the Troopers. 
Consequently, in April 1993, initial steps were taken by Troopers assigned to the western
Alaska Post and the Western Area Narcotics Team to establish a program which is referred to
as "Community Problem Solving." 


Goals and Objectives

The primary goal of the Community Problem Solving program is to reduce alcohol and drug
abuse and the resulting criminal activity and loss of life associated with this abuse. 
Additionally, a goal of the program is to enhance the relationship between the village leaders,
the Village Public Safety Officers, and the State Troopers.  The objectives designed to
accomplish these goals include the following:

          encourage village members to identify the needs of the village;

          encourage village members to establish corrective actions;

          encourage village members to implement change which is centered on a
           combination of cultural beliefs and criminal justice resources; 

          identify ways in which the village members can work in partnership with the
           VPSOs and the Troopers to implement actions to accomplish their plans;

          test this program effort in four villages; and

          develop a model process that could be applied to other villages with an interest
           in making social change and in having a significant role in resolving conflict in
           their villages.


Program Components

Initially, a planning group was formed to develop the concept of community problem solving. 
The group was made up of village leaders, Village Public Safety Officers, State Troopers, State
court system personnel, and rural health care and social service providers, as well as youth and
school groups.

The State Trooper assigned oversight duty for the Village Public Safety Officers was tasked
with generating public interest in meetings held in each community, establishing voluntary
participation by village leaders, and securing a formal invitation to the State Troopers from the
village governing body for assistance in the implementation of the program.  One of the Alaska
State Troopers involved with the program, Lieutenant Al Schadle, said that basically, "We went
into these villages and got the communities excited and got them identifying their own
problems, (and) got them taking action."  Additionally, the oversight Trooper was responsible
for continued follow-up activities with each village to maintain continuous community support,
identify law enforcement needs, and assess program results.  Village community problem
solving committees, which include various village representatives, were established at each site
selection.


Results and Impact

Performance Measures

Each month, Troopers and VPSOs hold meetings with village committees to review the
accomplishments, obtain subjective feedback on specific program efforts, and monitor the
impact on problems related to alcohol and drug abuse.

Each quarter, the request for service reports are reviewed by the Troopers to assess the Village
Public Safety Officers' activity.  The oversight Trooper reports monthly as to the effectiveness
of the alcohol and drug interdiction efforts and the efforts made to expand training in
interdiction skills for VPSOs and outpost Troopers.

Annually, statistics for the numbers and types of requests for service will be compared to the
same data before implementation of the Community Problem Solving program.  The same
comparison will be made of the death records in the villages.

Implementation Problems and Successes

There were numerous problems encountered during the initiation of this program.  The
proximity of villages which voted to completely restrict alcohol, "dry villages," to that of
neighboring villages with no alcohol restriction caused some friction between the communities. 
Also, this created an easy means of access to alcohol for those individuals who were unwilling
to abide by the alcohol restrictions in their village.  Meetings were organized between villages
to air concerns and combat this problem.

Each community problem solving committee is made up of representatives of the various
leadership groups from each village.  Due to power struggles among these groups and the
different views on important issues such as sovereignty, subsistence hunting and fishing rights,
and tribal courts, considerable time and effort was necessary on the part of the oversight Trooper to keep the committee focused on alcohol and drug abuse issues and the negative
impact each was having on the village.

There have been occasions when committee members and village leaders have been intimidated
by village residents who have enjoyed financial gain from illegal drug and alcohol activities. 
At these times, the community's cooperative efforts with the State Troopers have been
undermined.  In these situations, the Troopers target the individuals and monitor them closely. 
The Troopers also do "knock and talks" with the suspected bootleggers to attempt to dissuade
them from these illegal activities.
 
In support of the efforts being made by village members, follow-up from the oversight Trooper
has not always been timely.  Since the Troopers assigned to the western region are located in
larger hub communities, access to the villages has often been limited by weather, aircraft
availability, and remote runway conditions.

The leaders of the villages are usually the elders, who speak little or no English.  As a result,
translators are often required in order to avoid misinterpretation of information and intent. 
Additionally, many concepts captured in English words do not easily translate to the native
languages.

Another problem was the initial high turnover rate of VPSOs.  This was due in part to cultural
issues concerning one individual having authority over others.  This was solved by turning to
new individuals or by going outside of the village to hire a VPSO.  In addition, in communities
where the VPSO turnover rate is high due to his/her dismissal by the village council, no
replacement is provided if there is no legitimate cause for dismissal, and the community is
positioned at the bottom of the waiting list to receive another VPSO.

There has been significant resistance on the part of some Troopers assigned to the region to
support the program, which they have viewed as a social services effort rather than law
enforcement.  This problem was solved through a mandatory cultural awareness course
provided by the University of Alaska, and by assigning each Trooper a set of villages for
which he is responsible so that he will take ownership of the program.

Successes and Accomplishments

There has been a measurable reduction in alcohol and drug-related problems in the four
villages where the Community Problem Solving program has been introduced.  Participating
villages, which once resented Trooper presence, are now working with the Troopers to address
local issues involving public safety.  The Troopers are beginning to feel a sense of appreciation
for their efforts, which are directed toward a common goal with village members.  With these
initial results, resistance to the program efforts on the part of some Troopers assigned in
western Alaska has appeared to have declined.

For the first year of the Community Problem Solving program, a comparison of the number
of requests for Trooper service in the pilot villages was compared to the number of requests
in the prior year.  There was a 37.5% increase in the number of requests.  The number of calls
involving the report of information about individuals illegally importing and selling alcohol or
drugs rose significantly over the previous twelve months.  These increases indicate that village
residents are addressing the problem of illegal drug and alcohol activity by requesting
assistance.

In the year prior to the implementation of the Community Problem Solving program, the four
pilot villages had three accidental deaths directly related to the use of illegal alcohol.  During
the 12 months the Community Problem Solving program has been active in these villages,
there have been no such accidental deaths. 

Community leaders, school teachers, and individual residents have testified as to the positive
changes they have observed in their villages.  They cited this program as having created a
unified cause with the villages.  There has been an increase in the interaction between
leadership groups, youth and elders, public service providers, and school and church groups. 
Apathy has been replaced by community action and volunteering.  Lieutenant Schadle of the
Alaska State Troopers has said that "People that had tremendous apathy are now getting
involved and saying 'we want to do something as a community.'"

In Toksook Bay, students designed a sign to be placed at the village airport declaring the
village alcohol and drug-free.  The school principal described noticeable improvement in
overall student behavior which he attributed to the youth involvement in addressing community
problems.

In the village of Mekoryuk, the elders formed a group to meet with the village youth to pass
on village history and knowledge of their culture and traditions.  During the winter months,
the leaders organized safety patrols, which included the village's young leaders, to check for
intoxicated individuals and take them home or to the clinic.  A tri-council reprimand board was
established to address misconduct and to stimulate behavioral changes.

The village leaders and councils wrote letters placing all air carriers on notice that their village
was drug and alcohol-free and that the carriers should not be involved or allow their aircraft
to transport any alcohol or drugs into their village.  Additionally, the community notified
individuals known to be involved in illegal bootlegging activities that such activity would no
longer be tolerated.  This allowed these individuals the opportunity to stop their illegal activity
before the village took action to stop it.  Such actions included patrolling the known routes of
the bootlegger with volunteer snow machine patrols, watching the airports for these individuals,
and notifying the VPSO or State Troopers of any continued activities.

The ability of these four villages to take self-initiated action at determining the well being of
their community has been infectious in the region and has confirmed that village residents can
take responsibility for establishing accepted behavior in the spirit of self-determination.  More
villages are seeking out the State Troopers for assistance in the development of a community
problem solving concept in their village.  Other village leaders are asking the leaders from the
pilot villages to attend council meetings and describe how this program is working for their
villages.

Prospects for Replication

The prospects for replicating this program are excellent.  However, a consensus on the part of
the village to commit to the program is necessary.  In the State of Alaska it was necessary for
the community individuals to reach a level of intolerance that invoked the desire for change
in those things which were adversely affecting their well being.

The agency organizing the community problem solving program must be able to commit the
manpower needed to maintain regular contacts with the various groups and committees.  The
agency should also develop methods for evaluating the program's ongoing implementation and
effectiveness so that modifications to the community's problem solving approach can be timely.


Contact Information

Lieutenant Al Schadle
5700 East Tudor Road
Anchorage, AK  99507
(907) 248-1410
(907) 337-2059 faxArkansas


Supervised Treatment and Education Program (STEP) Court


Statement of the Problem

Pulaski County, Arkansas, which includes Little Rock, experienced a substantial increase in
drug-related crime during the 1980s and early 1990s.  Jack Holt, Jr., Chief Justice of the
Arkansas Supreme Court, has said that drug charges are involved in 15 to 25% of felony cases
filed in Arkansas.  Several other judges contend that the percentage of drug-related cases may
be as high as 75%.  According to detectives with the Little Rock Police Department, Little
Rock's burglary rate increased 40% in the first quarter of 1994 over 1993, an increase they
attribute to career burglars feeding drug habits.  The number of drug-related cases prosecuted
in the courts also increased dramatically.

In November 1991 Arkansas sent a team to the National Substance Abuse Conference in
Washington, DC to learn more about Supervised Treatment and Education Program (STEP)
Court programs which had been developed in several cities and counties.  As a result of the
Washington conference, a detailed plan was drawn up to hold the Arkansas Drug Conference
in August 1992.  Teams of judges, prosecutors, defense attorneys, probation officers, and
treatment providers from almost all of the State's judicial districts participated in the
conference.  An outstanding program of national and local presenters dealt with issues related
to the disposition of drug cases and the treatment of drug abusing offenders.  After the
Arkansas conference, the teams from each judicial district developed a local action plan
designed to meet the particular needs of the local jurisdiction.  These plans included the
development of educational programs, community corrections programs, and others.  The plan
for the Sixth Judicial District, which covers Pulaski County, called for the establishment of a
"Drug Court" -- STEP Court -- based upon a diversion treatment model.


Goals and Objectives

The STEP Court's mission is to offer drug criminals intensive treatment within days of arrest.
Prior to its implementation, offenders would go without treatment as their cases wound through
circuit court, a process which typically took nine months.  The overall goal of the program is
to treat the offender and to forestall the offender's reentry into the criminal justice system.

Objectives of the STEP program include:

          housing all of the drug court facilities in one building;
          developing a comprehensive, collaborative program which provides a range of
           services to drug offenders to help them overcome their addiction;
          combining a carrot and stick approach in that any participants who fail must go
           to prison;
          allowing drug users who lapse the opportunity to reenter the program;
          setting up a computer system, accessible to all parts of the program, which
           allows for evaluation; and
          allowing first-time, nonviolent drug offenders, or felony offenders with serious
           drug or alcohol problems, to leave the criminal justice system without a record.

It also became apparent that a new approach to the sentencing of drug users would help to
alleviate overcrowding in prisons and free prison spaces for violent prisoners by diverting
nonviolent drug users to treatment and counselling. 


Program Components

The Arkansas STEP Court combines a three-pronged approach to drugs and crime:  a justice
component, a public health component, and treatment for addicts.  This is the only drug court
in the country which has managed to house all of these components in the same building.

One of the lessons learned from visiting other STEP Court programs is that the strength of the
program depends on the personality and commitment of the judge assigned to it.  Chief Justice
Holt appointed Circuit Judge Jack Lessenberry to be the drug court judge in Pulaski County. 
Judge Lessenberry was selected because of his demonstrated commitment to community
service.  The goal was to choose someone who would accept that diversion was not abating
the criminal process, but a sensible approach to dealing with drug issues.  Judge Lessenberry
is a proponent of this view.

The STEP Court accepts diversion referrals from all of the municipal courts in Pulaski County,
as well as from circuit courts.  The STEP Court is an alternative to circuit court for people
accused of felony drug crimes.  As such, the court's focus is different from that of circuit
courts, which do not treat drug addiction.

The process works as follows:  the offender is arrested, arraigned, and taken directly to the
STEP Court.  Clients are referred for screening and assessment to the Central Assessment Unit,
at which time a decision is made regarding their eligibility for the program.  All clients receive
an initial substance abuse screening and a health screening.  Clients are divided into three
groups:  (1) individuals who do not appear to have a substance abuse problem or are not
motivated to participate in treatment services; (2) individuals who have a moderate substance
abuse problem and need less intensive treatment services such as drug education; and (3)
individuals who have a serious substance abuse problem and need more intensive treatment
services.  Individuals in the first category are not recommended for services as part of the
STEP Court.

The STEP Court order can include any of these three components:  ancillary referrals such as
vocational and educational training, medical care, liaison services, or alternative housing;
treatment; and self-help groups.  Many service organizations have come into the STEP Court
and have been funded through the Governor's office.  Treatment before this was on an ad hoc
basis, and most of what existed was residential.

Once diverted into the STEP Court program, the defendant signs a waiver to the right to a
speedy trial and agrees to participate in the specific treatment program tailored to his or her
needs after completion of an evaluation and recommendation from a certified substance abuse
counsellor.  The treatment component lasts a minimum of one year.  Random urinalysis and
regular reporting to the court occurs throughout the treatment phase.  The initial assessment
includes a complete physical examination and special testing for tuberculosis, the human
immunodeficiency virus (HIV), and other sexually transmitted diseases.  For those participants
who complete the program, the State waives any right to file charges based upon the incident
leading to the initial arrest.  Judge Lessenberry maintains the ability to remove any person from
the program, at which point the individual is returned to the referring court and the regular
criminal justice process.


Results and Impact

Implementation Problems and Successes

The process to create a STEP Court was begun in 1991, and it did not become operational until
September 1994.  Locating and purchasing the building took 18 months.  Program
administrators wanted to be near the Pulaski County Courthouse, and the new building is four
blocks away.  The STEP Court is a totally self-contained unit, including the court, the meeting
rooms, and the treatment rooms.

At first, working out the format for getting people into the program was a problem.  The
prosecutors wanted everyone to plead guilty.  They were convinced that it was better to have
participants waive the right to a speedy trial but volunteer for the program.  Law enforcement
and the prosecutors had to be educated.  The program has 100 clients now with an anticipated
600 cases.  The success rate has been wonderful.  Initially, program administrators feared that
people without addiction would try to avoid the proper disposition of cases, that the court
system would "dump" cases into the STEP Court.  This has not occurred.
Successes and Accomplishments

This is the first attempt in the United States to bring together not only courts and the treatment
community, but also public health entities.  It successfully diverts drug and alcohol addicts
from the criminal justice system.  The program works because it is flexible.  Participation is
voluntary, and if the client fails at the individual and group therapy or violates the terms of
his/her agreement with the court, he/she goes to a prison bed for a week.  Once the client is
sober, he/she is again offered a place in the program. 

Funds from various sources have made the STEP Court possible.  Technical assistance funds
have been received from the Center for Substance Abuse Treatment of the U.S. Department
of Health and Human Services.  These funds have provided consultants to come to the State
to work with court and treatment communities and have allowed Arkansas officials to travel
to several sites to review drug courts in other states.  The National Center for State Courts has
provided the technical assistance to develop a software program which links the court and
treatment databases.  The State Justice Institute has provided a grant to fund a complete
evaluation of the program.  The Arkansas Coordinating Council has provided U.S. Department
of Justice funds for the cost of the facility and the cost of drug screening.  They have also
funded the salary of an assistant for the Sixth District prosecuting attorney and public defender. 
The former Arkansas Adult Probation Commission has provided a case manager to act as a
liaison between the court and the treatment providers and to oversee the progress of all clients. 
The Arkansas Department of Health is providing funds for the treatment services and the salary
of the project director, health nurse, and two licensed substance abuse counsellors to staff the
Central Assessment Unit.  Pulaski County agreed to set aside jail space in the event that bed
space is needed for the drug court.  A grant from the Arkansas Bar Foundation furnished the
courtroom, exterior signs, and a flagpole.

A crucial and innovative approach to dealing with drug users is the Central Assessment Unit,
which is a component of the STEP Court program.  It is beneficial to courts because it
provides an additional and effective option for this very large and difficult group of offenders. 
It provides public health agencies access to very high-risk persons to whom they would not
ordinarily have access.  It provides the treatment programs with sanctions through the courts,
making it more likely that persons will take seriously their commitment to treatment.

The program provides a major benefit to Pulaski County by relieving court dockets, freeing up
bed space in the jail, diverting low level offenders from the State correctional system, and
providing more effective treatment to offenders.

Prospects for Replication

A Central Assessment Unit could serve not only a drug diversion court, but also many other
institutions.  Juvenile courts and family courts could utilize the services of professional health
and mental health evaluators.  There is a good possibility that the Federal government will consider providing block grant funds to establish such a Central Assessment Unit in each
judicial district of the State.

Arkansas Supreme Court Chief Justice Jack Holt, Jr. has said that "The success of the program
depends in part on the strength of the person sitting as judge."  A strong personality will
virtually ensure the success of the program.


Contact Information

Chief Justice Jack Holt, Jr.
Arkansas Supreme Court
C1 US Justice Building
625 Marshall Street
Little Rock, AR  72201
(501) 682-6861
(501) 682-6877 fax

J.D. Gingerich
Director, Administrative Office of the Courts
625 Marshall Street
Little Rock, AR  72201
(501) 682-6861
(501) 682-6877 faxCalifornia


Operation Revitalization (WEED & SEED)


Statement of the Problem

The Tenderloin is San Franciscos most densely populated neighborhood and the area with San
Franciscos highest crime rate.  Drug dealing, drug-related robberies, shootings, and assaults
are daily threats to the residents of the Tenderloin, especially the elderly.  Gangs involved in
drug-trafficking frequently resort to violence in an attempt to control their "turf."  The victims
of this violence are all too often the residents of the Tenderloin.

The Tenderloin suffers from the effects of general physical deterioration and economic decline. 
This neighborhood, surrounded by major hotels and retail centers, has large numbers of
abandoned buildings and vacant store fronts.  The streets and sidewalks are filthy, and the
street lighting is inadequate.  There are many community-based organizations and agencies in
the Tenderloin.  These agencies draw needy people from other neighborhoods in San Francisco
to a community already overwhelmed by the distress of its own residential population. 
Community-based organizations (CBOs) had been working independently to meet some of the
challenges faced by the residents of this neighborhood.  By inviting these organizations
together to work on Operation Revitalization, the project had a more extensive, immediate, and
long-lasting impact on the quality of life in this community.

In June 1992, the San Francisco Police Department (SFPD) implemented a pilot program in
the Tenderloin entitled Operation Revitalization (Weed & Seed).  The program, funded through
the California State Office of Criminal Justice Planning, established a collaborative partnership
between local criminal justice agencies and CBOs to develop a comprehensive plan to
revitalize this troubled community. 


Goals and Objectives

The overall goals of Weed & Seed were to establish programs and enhance existing activities
aimed at assisting local government in the apprehension, prosecution, adjudication, and
supervision of drug offenders and to assist local government and CBOs in the cleaning,
reclaiming, and revitalization of the Tenderloin.

The priority of the weed portion of the program was the control of crime, primarily drug
trafficking and the street crime associated with it.  The Police Departments efforts in this
program were supported by the District Attorneys Office, the probation department, and the
Victim/Witness Assistance Program.  The City Attorney's Office was able to conduct code
enforcement proceedings for buildings in the neighborhood and create a program to make sure
that buildings were maintained as safe, clean, and habitable residences.

The seed programs were created to enhance the educational and organizing efforts for the
residents of this community and to improve the physical surroundings of the area.  These
efforts would enhance the economic viability of the area, encouraging the opening of new
businesses, the development of new housing, and improvements in the service delivery systems
of all agencies and departments involved in the program. 


Program Components

Weed

A component crucial to the success of the enforcement program involved the SFPD Narcotics
Unit.  The Narcotics Unit provided enhanced enforcement through a "Buy Bust" program as
well as increased undercover street operations.  The police department determined that a high
percentage of calls to their narcotics hotline came from the Tenderloin community.  They were
able to enhance their enforcement efforts based on calls from the community.

The SFPD's community policing philosophy enhanced Operation Revitalization (Weed &
Seed).  Community police officers from the Tenderloin Task Force developed partnerships with
the citizens, merchants, community organizations, and government agencies to identify and
solve problems in the area.  Officers provided additional foot patrols and bicycle patrols and
targeted mobile patrol aimed at violent offenders, repeat offenders, drug-trafficking, and other
gang-related criminal activity. 

The District Attorney provided intensive vertical prosecution at every stage of the investigation
and prosecution of cases generated in the weed portion of the program.  This prosecution
method allows one Assistant District Attorney to follow the case from booking to completion,
allowing for more comprehensive case development.

The District Attorneys Victim/Witness Program, utilizing staff and volunteers, provided crisis
intervention, court liaison, resources, and referrals to Tenderloin residents who were victims
of crime.  They established an intake site in the Tenderloin to better serve the population.

The Adult Probation Department designated an officer to provide extensive supervision of 25
probationers living in the Tenderloin.  This officer worked as a liaison with the SFPD and the
San Francisco Sheriffs Department to facilitate the enforcement of warrantless search
conditions of probation.  The officer was assigned to the SFPDs Tenderloin Task Force office. 
By working there, he became well known to community groups.  These groups helped him
enhance service delivery to probationers living in the target area.

The City Attorney's Office assisted residents, owners, managers, and neighbors in addressing
concerns they raised about poorly maintained buildings.  The grant provided this office with
the opportunity to work with community organizations to develop a training program for
residential hotel operators.  This training program is now being used throughout the city of San
Francisco.  The Assistant City Attorney worked with community organizers who came in
contact with buildings where building and fire code violations existed.

The San Francisco Sheriff's Department provided a uniformed sergeant, deputy, and a work
furlough crew of eight to support the street cleaning and sidewalk sweeping in the
neighborhood, assisting the City's Department of Public Works, Street Cleaning Division.  The
deputy sheriffs provided an additional law enforcement presence which served as a deterrent
to criminal activity on the streets. 

The SFPDs Drug Education Program for youth was expanded into Galileo High School, a high
school attended by students living in the Tenderloin.  Volunteer police officers were assigned
to the campus as liaisons between the police department, the school administration, and the
student population.  The officers spoke to classes on crime prevention and drug education and
investigated student-related crime issues on and near the campus.

Seed

The Police Department contracted with San Francisco SAFE, a non-profit crime prevention
organization, to implement a comprehensive crime prevention education and community
organizing program.  SAFE provided crime prevention programs for residential hotels and
multiple-unit dwellings in the target area.  Trainings were designed specifically for building
managers and residents that included building security and personal and property safety. 
Workshops were provided at organizations serving the senior population for the purpose of
introducing safety awareness, street safety, apartment security, and how to avoid scams. 
Networking with other neighborhood agencies and referrals was accomplished at these
presentations.  Home and street safety presentations for a special safety program were
developed for the children of the Tenderloin.  The program included workshops on street and
apartment safety.  The children were given an opportunity to learn ways to prevent harm,
including the harm that can come from those within their community.

The North of Market Senior Services Intergenerational Program (IGP) was created to bring
senior citizens and youth together to take an active role in Operation Revitalization as part of
the seed phase.  The IGP is a joint program with the Vietnamese Youth Development Center
(VYDC).  The programs aims are to involve seniors in mentoring youth, community service
projects, community events, and crime prevention and safety education programs.  IGP
components enable the seniors and youth of the Tenderloin to build meaningful experiences
together.  These activities serve the community and help to increase understanding between
youth and seniors of many cultures.

VYDC expanded its Peer Resource Group Program to become partners in the IGP.  The high
school students participating in this program were involved in an integrated program of
training, community service, and leadership development.  They explored teen, senior, and
community issues as they worked with the North of Market Senior Services and other
participating agencies and departments.

The North of Market Planning Coalition (NOMPC) hired a full-time housing organizer and a
part-time Southeast Asian community organizer to work with other organizations to revitalize
the Tenderloin.  Revitalization of the Tenderloin has been the focus of a comprehensive
research document produced by NOMPC.  This document, "Tenderloin 2000," identifies
housing and economic development as cornerstones of neighborhood revitalization.  NOMPC
will help build resident organizations in buildings throughout the target area.  These groups
will preserve existing low-cost housing and develop new affordable housing.
 
The State of California Employment Development Department (EDD) assigned an Employment
Program Representative to provide a job service program in the Tenderloin.  The staff person
was given office space at the Vietnamese Youth Development Center.  This out-stationed EDD
employee recruited clients to participate in the program, and through interviews, assessed their
employability, aptitude, abilities, and interests.  The program representative then developed job
referrals and placement for the client.  Referrals to other EDD programs and supportive
services were also made.  Services were provided to these residents effectively through a
phone/computer link so that clients were immediately connected to resources throughout
Northern California.


Results and Impact 

Implementation Problems and Successes

A challenge faced in working in the Tenderloin is the diversity of the languages spoken there. 
During the grant period most of SAFEs presentations were given in several languages.  In
addition, SAFE was able to have seven of its crime prevention brochures translated during the
grant period.  Those materials continue to serve the community.  SAFE has been successful
in contacting persons throughout the community who will translate additional materials as
needed.

Successes and Accomplishments

Weed

The Police Departments Narcotics Unit was very successful in reducing narcotic activity in
the Tenderloin.  The "Buy Bust" program resulted in numerous arrests, and in the last quarter
of the grant period, 75% of those arrests were filed for vertical prosecution.  Officers from the Narcotics Unit will continue to establish "Buy Bust" programs in the Tenderloin, as well as
assist in other major narcotics enforcement efforts.

The community policing efforts by the officers from the Tenderloin Task Force were
instrumental in coordinating resources to provide comprehensive problem solving strategies. 
Those strategies included code abatement, safety lectures and workshops, and security surveys. 
The strategies have become priorities in the ongoing work of the community police officers
in the Tenderloin.

The drug education program in the high school was so well received that the Police
Department has sought funds to expand it.  The success of the program can be seen in the way
the traditional barriers between the Police Department and the school district have been
eliminated.  The school district will continue to support this program at Galileo High School.

San Franciscos Adult Probation Department has been given space at the SFPDs Tenderloin
Task Force Office so that a probation officer can continue to work directly with law
enforcement officers in this district in identifying problematic probationers in the community.

The City Attorney's Office established a very effective program to address building, health,
and fire code violations in the community.  Code enforcement efforts successfully improved
the conditions in many apartment buildings and residential hotels.  A training manual and
workshop were developed by city attorneys to provide hotel and apartment management with
the tools needed to operate safe, clean, and affordable housing.  The resources of the City
Attorney's Office are available to law enforcement and have become part of the outreach done
as these officers work in their designated beats.

The vertical prosecution of narcotics offenders completed by the District Attorney's Office was
instrumental in the reduction of narcotics in the Tenderloin.  Under this system, cases were
followed from arrest through the entire court process by the same Assistant District Attorney. 
Cases developed in this manner resulted in the conviction of some of the area's most active
narcotics dealers.

The District Attorneys Victim/Witness Program established a site at the YMCA in the heart
of the Tenderloin.  This site provided crisis intervention, case status, and resource and referral
assistance to Tenderloin residents who had been victimized.  The office saw an increase in the
number of clients from the Tenderloin, and the satellite office has been retained in the YMCA
so that the program can continue to provide these services.

The San Francisco Sheriffs Work Furlough Program made a major contribution to the Weed
& Seed program and to the Tenderloin community.  The revitalization of the Tenderloin can
be seen in the extensive efforts of this program to clean the streets, sidewalks, and alleys of
the neighborhood.  While providing the cleaning service, the Sheriffs Department was able
to serve warrants on many individuals who had left drug treatment programs, work furlough, and work alternative programs.  The Departments Work Furlough Program will continue its
cleaning efforts in the Tenderloin and will expand them into other troubled areas of the city.

Seed

SAFE staff shared crime prevention expertise and strategies with hundreds of Tenderloin
residents.  They participated in workshops in which a variety of providers, both grant-funded
and non-grant-funded, gave information about services available throughout the community. 
Through these workshops and presentations, SAFE was able to provide crime prevention
information to a very wide audience.

The safety education program through the North of Market Senior Services (NOMSS) was
more extensive and included more senior groups in the Tenderloin than have ever been able
to be involved.  There were multilingual presentations and discussions as well as those in
English.  The seniors and NOMSS are prepared to strengthen their own advocacy organization
to become a more viable voice in community affairs.

The youth and seniors who participated in the IGP helped SAFE create crime prevention tips
and strategies that directly address the needs of the Tenderloin.  The relationships with these
two organizations has enabled SAFE to extend crime prevention and community organizing
services to previously under-served and highly vulnerable populations.

The organization of residents accomplished with the help of the North of Market Planning
Coalition was an important element in helping residents advocate for changes in conditions of
buildings where they live.  It also provided important data for the City Attorneys Office when
it investigated potential building health, fire, and safety code violations.  The relationship
between SAFE and NOMPC and the City Attorneys Office continues to grow as they work
together to improve conditions in individual buildings.  The work done on this grant paved the
way for many ongoing community revitalization efforts.

The Job Service Program of EDD was able to provide a range of services to many residents
of the Tenderloin.  The location of the out-station, at the VYDC office, was successful because
many homeless and unemployed persons come to that building for general services.  The
Tenderloin out-station created by the EDD/SFPD community collaboration provided direct
employment services and acquainted residents with other job-related services and how to access
them.

In working closely with the NOMPCs Southeast Asian community organizer, SAFE, the
SFPD, and other participating agencies were able to identify crime concerns previously hidden
from them.  Pedophilia and domestic violence within the Lao and Cambodian communities of
the Tenderloin have been an unspoken concern and underreported crime for many years.  With
the assistance of the NOMPC and other agencies that serve children and families, these areas
of crime were addressed through education and law enforcement efforts.

SAFE and the SFPD cooperated to develop problem solving frameworks that residents, owners,
and business people in the community found vital in their efforts to combat crime.  Many
community officers assisted at presentations and have continued to offer presentations and
crime prevention strategies to groups of residents and business people in the community.

The Department of Light, Heat, and Power was given the funds to improve some of the street
lighting in the Tenderloin.  During the grant period, this department received a private donation
from a local bank of $50,000.  With this money, lighting engineers were able to replace most
of the street light bulbs in the community with brighter, longer lasting ones.  This change in
lighting has made the neighborhood brighter and safer at night.

A small portion of the grant was devoted to sidewalk steam cleaning, which was done by
Steamy Solutions, a small owner-operated business.  In addition to the hours contracted, this
business provided additional hours of donated time.  The cleaning significantly improved the
neighborhood's appearance.  Steamy Solutions has encouraged the development of an ongoing
sidewalk cleaning program for the Tenderloin.

Prospects for Replication

The success of Operation Revitalization (Weed & Seed) was made possible by the
collaboration of all the participating agencies and organizations.  The people of the
neighborhood and the agencies working there understand the value in working together to solve
problems and revitalize their neighborhood.  "We have broken a lot of barriers working with
the program, working much closer with other departments, instead of separately," said Sergeant
John Bisordi of the San Francisco Police Department.

The people of the Tenderloin have a greater understanding of the role of the Police Department
and other facets of the criminal justice system in their community.  They also have a deeper
understanding of the importance of community action in response to issues, and how effective
that action can be when combined with the efforts and support of the Police Department, city
agencies, and organizations in their neighborhood.  These city departments and agencies know
how valuable involving the community can be in making their efforts more successful.


Contact Information

Sergeant John V. Bisordi
Office of The Chief of Police
San Francisco Police Department
Hall of Justice
850 Bryant Street
San Francisco, CA  94103
(415) 553-1551
(415) 553-1554 (fax)

Suzanne Gautier
Crime Prevention Specialist
San Francisco SAFE, Inc.
Hall of Justice
850 Bryant Street
Suite 565
San Francisco, CA  94103
(415) 553-1984
(415) 553-1967 (fax)Colorado


Broomfield Police Department Senior Liaison Program
                                     

Statement of the Problem

Most police officers agree that situations involving senior citizens are difficult.  Officers in the
Broomfield Police Department can cite many calls they have handled that left them feeling
frustrated and helpless when dealing with senior citizens.  All too often, police officers have
no resources and no knowledge about where to turn to alleviate the problems that are particular
to seniors.  These problems may involve health, lack of family support, limited income, illness,
death, and victimization.  Fear of crime and victimization are principle concerns for senior
citizens.  Seniors' fear of crime is heightened by their limited resources, fixed incomes, and
physical limitations to resist.  Sometimes, this fear of victimization limits their lifestyles and
mobility. 


Goals and Objectives

The goal of the Broomfield Police Senior Liaison Program is to reduce the fear of crime and
enhance the overall quality of life for the senior community of Broomfield, Colorado.

The objectives of the program are to:

          maintain a storefront operation at the Senior Community Center that will
           improve police/senior relations through direct contact between seniors and police
           officers;

          provide a minimum of 12 crime prevention programs for seniors to reduce
           criminal opportunity and vulnerability;

          provide direct contact concerning crime awareness to 1,000 seniors through the
           storefront operation and crime prevention programs;

          provide a minimum of 24 home security checks for seniors, in conjunction with
           Operation I.D., during the grant year; 

          provide a Neighborhood Watch Program for seniors and interested citizens as
           requested, but a minimum of six times per year; 

          publish a quarterly senior newsletter with crime tips and program information,
           including distribution to 2,550 senior citizens to increase awareness of criminal
           behavior and inform seniors of available resources;

          produce six public service announcements for the Senior Liaison Program to be
           aired on a local cable television station; and

          conduct follow-up on all police department reports involving senior citizens.


Program Components

The Broomfield Police Department's mission statement addresses its desire of "enhancing the
quality of life for the community and protecting life and property through a wide range of
services."  With this mission in mind, the goal of the Senior Liaison Program is to enhance the
overall quality of life and reduce fear of crime for seniors living in Broomfield.  This is
achieved through focused services including a storefront operation, educational programs on
crime-related topics, and personalized prevention measures.  The Senior Liaison Program uses
a creative approach to fight criminal opportunity and address a variety of important topics.

The Senior Liaison Program was initiated in 1992.  The police department assigned a senior
liaison officer to expand services with the Community Senior Center.  This officer is
responsible for coordinating specialized crime prevention programs, services, and reference
materials for the senior community.
 
In coordination with Senior Center staff and the Broomfield Police Department, a storefront
operation was established at the Center to assist seniors.  The Center is a central gathering
place for the senior population.  Once a week the senior liaison officer is available for
approximately four hours at the storefront to discuss crime prevention concerns, suggest
preventive measures, or suggest other resources.  Examples of topics addressed at the storefront
are:  fraudulent solicitation; living will scams; driving skills; neighborhood disputes; elder
neglect; and personal safety.  Individual discussions with seniors or their friends create
additional follow-up contacts for the senior liaison officer.  The officer raises awareness of
criminal opportunity and availability of crime prevention services through the police
department.  Thomas C. Deland, Chief of Police in Broomfield, says that "the most important
thing (in working with seniors) is to have individual contact with the same officer in order to
develop their (the seniors') trust," and the seniors look forward to this direct contact with the
officer who has opened these lines of communication.

The Senior Liaison Program provides crime prevention classes at the Senior Center, senior
housing complexes, mobile home parks, and to various service groups.  The educational
programs cover diverse topics.  "Self-Protection" addresses travel safety and personal safety
tips; "Home Security" provides home safety and security tips; "Fraud and Con Games" makes
seniors aware of fraudulent practices and seniors' vulnerability to such tactics; "When to Hang
Up Your Car Keys" addresses warning signs that a senior should stop driving and offers
alternative transportation means; "Stop That Thief" points out the importance of community
involvement in crime prevention; and "Elder Abuse and Neglect" addresses a very sensitive
topic for elders and community members. 

Although not originally in the program, security at senior dances became important because
it was based on a request for service.  Seniors attending the monthly social events were being
confronted by juveniles and were fearful.  Attendance was low at evening events.  Senior
Center staff requested the assistance of officers to provide security.  The Senior Liaison
Program responded to this need and provides officers during these events.  Since the initiation
of the escort service, the Senior Center staff has noted an increased attendance and a feeling
of security on the part of the seniors.

A quarterly Senior Sentry newsletter is mailed to each senior resident of Broomfield. 
Information about crime prevention programs, services, and newsworthy crime tips are
published.  This mass mailing enhances the program's ability to reach isolated seniors and
disseminate information as broadly as possible.

By working exclusively with the senior population, the Senior Liaison Officer has become an
expert in senior issues.  The Senior Liaison Officer has become familiar with a variety of
available community services and referrals for seniors.  Service providers work closely with
the Senior Liaison Officer to ensure that seniors' needs are met.  For instance, a locksmith has
helped to secure homes.  Meals on Wheels staff notify the police department of seniors in
need, or when they discover something suspicious.  In addition, the Senior Liaison Program
works in coordination with senior associations such as the American Association of Retired
Persons (AARP) and the Boulder County Retired Senior Volunteer Program (RSVP).  These
groups provide support and resources for senior concerns and problems.  

Collaboration within the police department also occurs.  The Senior Liaison Officer receives
every report taken by the department that involves a senior.  The report is forwarded to the
Liaison Officer to conduct a follow-up.  The officer may contact the senior and decide whether
he or she is in need of services provided by the police department or by another community
agency.  Department personnel are trained on the special needs of seniors, including elder
abuse and neglect.


Results and Impact

Performance Measures

The success of the Senior Liaison Program can be measured quantitatively and qualitatively. 
The program's efficiency can be measured in part by the number of seniors served and the
number of crime prevention classes conducted.  The program's goal for its first year was to
contact 1,000 seniors.  As of October 1994, over 6,000 senior citizens have been contacted.

The Senior Liaison Program supports the Broomfield Police Department's positive community
policing approach.  Many effects of this type of policing are difficult to quantify, other than
through a "feeling" expressed by the seniors who have participated in the program.

The primary result of the Senior Liaison Program has been an increase in safety and a decrease
in vulnerability through education.  Thank you letters to the Senior Liaison Officer show that
the seniors are noticing a difference in their lives.

Implementation Problems and Successes

At first, officers had trouble deciding if the seniors' fears were based on reality.  The program
has alleviated this problem by having one or two officers who know the seniors and are
acquainted with their specific problems.

Successes and Accomplishments

The number of contacts made represents an outstanding accomplishment for the Senior Liaison
Program.  As a result, seniors are better protected, are more involved in the community, and
have received needed services.  Seniors have developed a high level of confidence and trust
in officers, and communication between seniors, officers, and community members has
increased significantly.

Seniors express that they "feel secure," are "happy to know someone is thinking of their
safety," and are pleased that they "can talk to the officers."  All these positive accolades
provide the motivation behind the success of the Broomfield Police Senior Liaison Program.

The support from the local Senior Center has been crucial to the success of the program. 
These efforts have enhanced the overall quality of life for seniors and have reduced fear of
crime through focused services such as crime prevention classes.  The primary means for
contacting the seniors is the storefront operation, and without the cooperation and collaboration
from the Senior Center this type of activity would not exist.  Three thousand, five hundred and
fifty-one seniors have been contacted through the storefront operation alone.  The Senior
Liaison Officer has evolved from a stranger whom no one would talk with to the primary
source of advice for thousands of senior citizens.

Thank you letters to the Senior Liaison Officer show that the seniors are noticing a difference
in their lives.  One thank-you letter expresses a couple's gratitude for the program:

      We are in our late sixties with a fixed income.  It is sometimes difficult to get everything
      done that needs doing.  Your program in helping senior citizens has been a tremendous
      help.  We know we are much safer in our home.

To express their gratitude, seniors wanted to "give back" to the community.  Several senior
groups make quilts and toys to give to crime victims.  Over 250 quilts have been donated by
seniors to victims.  Donating their hand made quilts and toys have been their way of saying
"thank you."

The Senior Liaison Officer and those helping him have committed themselves to helping needy
seniors.  Officers have provided lamps, shopped for groceries, and have helped seniors in many
other circumstances.  The new attitude of the officers can best be expressed by the many
examples of officers helping seniors.  The Liaison Officer has gone as far as relocating
individuals who were living in abject circumstances and had no family assistance.  The
program has created a better understanding of senior-related issues.  Problems that previously
would not have been recognized are now being resolved because of the increased level of
awareness.

The International Association of Chiefs of Police initiated the Webber Seavey Award for
Quality in Law Enforcement to recognize innovative and creative police programs.  Over two
hundred police agencies throughout the world submitted their program information for this
competitive award application process.  The Broomfield Senior Liaison Program was selected
as a semifinalist for this award.

The program has increased senior safety and security by providing education to 770 seniors
and security checks for 34 seniors.  The project's services have been explained to 504 seniors
who live in isolated areas.  Citizens have reported 260 crimes against seniors.

Prospects for Replication

The Senior Liaison Program can easily be replicated in any city or rural setting.  The success
of the Broomfield Police Senior Liaison Program has encouraged other cities and agencies
throughout the country to start similar programs for their senior populations.  These agencies
have requested the technical assistance of the Senior Liaison Officer to develop similar senior
programs in their areas.

Proactive departments committed to enhancing the quality of life for their communities are
seeking innovative programs to accomplish this goal.  It has become imperative for police
departments to form partnerships with their communities and use all resources available to
achieve community wellness.  In Broomfield, the Senior Liaison Program is just one way that
the department has enlisted other agencies and community members to work together toward
common goals.

Contact Information

Thomas C. Deland
Chief of Police
Broomfield Police Department
One Des Combes Drive
P.O. Box 1415
Broomfield, CO  80038-1415
(303) 438-6440
(303) 438-6490 fax
Florida


S.A.F.E. Program


Statement of the Problem

Census and economic statistics show a dramatic rise in one-parent families as well as families
with two working parents.  This has caused an increase in unsupervised children during after-
school hours.  Research suggests that children need structure and direction during their
formative years, and unfortunately these attributes are not available.  The "latchkey" child has
become more the norm than the exception in today's society.

With the rise in "latchkey" children comes the next catch phrase:  at-risk.  The definition of
"at-risk" includes children with one parent and delinquent and/or truant children who are
behind grades in school or have had contact with the juvenile justice system.  The City of
Jacksonville, in conjunction with the Duval County School Board, the Office of the Sheriff,
and the Jacksonville Children's Commission has established the Safe, Accessible, Flexible,
Enrichment program to combat truancy, juvenile crime, substance abuse, and poor school
performance as well as provide a safe haven for "latchkey" children.

The target group for the S.A.F.E. Program are children ages ten to fourteen.  The program
specifically seeks children who lack supervision and/or guidance during the afternoon and
evening hours, Monday through Saturday.


Goals and Objectives

The overall goal of the program is to afford an opportunity for positive early adolescent
development by providing a safe haven for latch-key and at-risk children (ages ten to fourteen),
while providing educational, cultural, social, and enrichment programs to further enhance their
growth into responsible teenagers and young adults.

The following objectives have been determined to achieve this goal:

          increase the number of latchkey children attending the S.A.F.E. Program;
          pinpoint students who have not been making academic progress or still exhibit
           unacceptable behavior for special assistance and counselling;
          increase volunteer and community support of the program;
          establish business partnerships with the program;
          increase youth attendance in after-school programs; and
          change the perception of police officers as antagonists to helpful friends.

Program Components

Seven sites have been identified as target sites for the S.A.F.E. Program.  These sites house
the students or are located within high juvenile crime areas.  Each site is staffed by one
S.A.F.E. "coordinator," four "specialists," and one police officer.  The majority of the salaried
employees are people holding college degrees (MED, BS, BA, or AA) in areas related to
youth.  All of the staff have had experience in youth-related programs and are committed to
improving the success rates of children, which will result in decreased truancy and school
dropouts.  Several of them are former teachers who have had training in effective strategies for
at-risk youth.  Extensive training regarding early adolescent development was provided to all
S.A.F.E. employees by faculty members at the University of North Florida and Florida State
University. 

The seven "Community Affairs" Officers are fully sworn police officers, provided by the
Jacksonville Sheriff's Office, who assist in maintaining security, arranging community tours,
assisting with children who have behavior problems, and teaching or providing various lectures
(anti-drug, kidnap prevention, and conflict resolution).

Some of the topics provided in training are:  situational leadership, understanding resilient
youth, problem solving strategies, characteristics of ten to fourteen year-old youth, value
clarification, communication skills, positive role modeling, and conflict and behavior
management.  The four major components of the program are:  Education, Recreation,
Enrichment, and Life Coping Skills.

Education  Every day the students begin by doing their homework.  If no homework was
assigned, program staff provide exercises in the areas of study that the children are presently
working on.  The program has educational and computer games that are used as supplements
to regular classroom work.  Tutors, both paid and volunteer, are used to assist the staff with
educational assignments.

Recreation  In this component the children have different scheduled activities each day.  These
recreation activities are both individual and team oriented.  There are also competitions
between S.A.F.E. sites in selected sports.  The possibility is being explored of having the local
Police Athletic League provide interscholastic competition, or a full slate of sports activities
in which the S.A.F.E. Program would compete against other schools and community teams.

Enrichment  Each site takes up to six field trips per month.  These trips are free to all
participants who earn the right to take them.  A point system is set up in which children earn
merits for attendance, behavior, and academic accomplishments which allow them to attend
these trips and other S.A.F.E. functions.  These trips range from educational trips to historic
sites to professional sporting events.  S.A.F.E. staff attempt to make these educationally,
socially, and culturally enriching.

Life coping skills  In this component, participants learn many different skills they will need
when they are out on their own.  The real life simulation allows participants to receive a
"wage" and pay "bills," plan their daily lives, plan meals, and live within a budget.  There are
numerous instructional aids and handouts for this exercise.  It also includes instruction on the
types of things each adult must be prepared to handle, such as insurance, taxes, credit, and
legal issues.

There are numerous activities that relate to these components.  Workshops available to the
students include:  culinary arts, drama and fine arts, drug and alcohol abuse, health, life coping
skills, interpersonal skills, conflict management, and individual counseling.  In addition to
specialized workshop sessions, all of the sites have implemented arts, craft, and musical
activities including puppets, ceramics, drawing, kites, jewelry, photography, painting, chorus,
modern dance, music appreciation, line dancing, karaoke, jazz dancing, and group dancing.

As a result of the high percentage of students requesting workshops in the area of "home
skills," a wide variety of activities has been implemented at many of the sites, including: 
employment skills, cooking, food management, time management, domestic skills, landscaping,
home safety, manners, grooming, personal hygiene, housekeeping skills, and gardening.  One
of the most positive aspects of the S.A.F.E. program has been a variety of recreational
activities including:  basketball, ping pong, volleyball, racquetball, track and field, football,
double dutch, swimming, boundball, tennis, karate, boxing, gymnastics, and jogging.

The program is completely free to participants and their parents.  The monies that support the
project come from an allocation from the Mayor's Office, and volunteers play an important
role in the program.  Every site recruits as many volunteers as possible from parent councils
that are being formed at each site.  Contracted service people perform a variety of duties from
tutoring to teaching ventriloquism, cooking, arts and crafts, and sign language.  The Duval
County School Board opens their facilities for the program's use at no charge to the program. 
Certain fees are paid to the School Board to recoup overtime charges that are incurred by
custodians.

Each site has a student council that has input into the programming of activities and often rules
on disciplinary action that should be taken against students who have committed offenses
against the "Student Code of Conduct."  This Code of Conduct is the same set of rules that is
used by the School Board, which promotes consistency between the two agencies.


Results and Impact

Performance Measures

The program objectives have short-term and long-term measurements.  The short-term
measurement for the objective to increase youth attendance in after school programs is to
see an increase in enrollment by 25%, and the long-range objective is to increase daily
attendance by 25%.  All participants and their parents/guardians must fill out enrollment
information, and daily logs are kept on attendance.  All participants must sign in and out. 
Attendance and registration records are computerized and stored at the site for analysis.

The short-term measurement for the objective to decrease the number of latchkey children
left unattended is the increase in the number of children participating in the program who
have been identified by S.A.F.E. surveys or by School Board records as children who are home
after school without parental supervision. 

The measurement for the objective to improve overall school performance and decrease
truancy and poor behavior is the analysis of guidance/discipline records and comparison of
report cards over the course of the year.  This allows program staff to pinpoint the children
who need individual academic attention and counseling.  These figures and reports are made
available to program staff by the individual schools.  The ultimate goal is to have every
S.A.F.E. participant promoted every year without behavior and/or truancy problems.

A fourth, unwritten goal is to expand the seven existing sites to all middle schools in Duval
County.  Program administrators are constantly looking for more effective ways to fund and
expand existing programs.  Business partnerships are the new thrust.

Implementation Problems and Successes

At first, there was a large turnover in staff due to the credentials sought, including college
degrees and specific experience, and the inability to pay high wages.  Modifying the pay scale
and finding dedicated staff have been extremely important to keeping a regular staff.  The staff
to student ratio must be kept manageable, given that the children are troubled.

One of the major difficulties was merging of the Duval County School Board and the
Recreation Department of the City of Jacksonville, which have different policies, procedures,
and philosophies as to how this mission should be accomplished.

A problem in working with governmental organizations such as the Department of Parks,
Recreation, and Entertainment is getting the right type and numbers of equipment and supplies. 
Equipment and supplies must be adequate and readily available.  Scheduling must be flexible,
and items necessary to accomplish the goals must be on hand.  The ability to purchase new
items must be as flexible as the programming.  All sites will be as different as the
neighborhoods that they serve to allow for creativity among staff members.  Blanket purchasing
for similar programs at all sites will not sustain the children's interest.

In the beginning, the fact that the children would be at the program for upwards of seven hours
and the need to feed them because of this was overlooked.  The program now provides simple
snack foods, and cooking classes allow the students to eat what they themselves create.
Successes and Accomplishments

Many of the initial obstacles have been overcome, with seven sites successfully opened in
School Board facilities.  There is a strong spirit of cooperation between the two agencies.

The sites are fully staffed with professionals who are receiving training on a regular basis to
upgrade their skills and knowledge.  This training is being provided free of charge by the
Duval County School Board.  The purchasing system is becoming more diverse, which allows
easier access to supplies and materials essential for the successful operation of the program.

Prospects for Replication

There are several important factors to weigh when considering replication of any project of this
magnitude.  In this day of prudent government spending, it is important to note that no one
entity will be able to fund such an aggressive project.  Joint venturing is probably the only
avenue whereby funding and a variety of resources can be made available.  Problems may be
encountered when working within another organization's facilities.  A commitment to back the
program fully must be made by decisionmakers in all involved organizations.

This problem was not created overnight and will not be resolved quickly.  Long-term
commitment of all parties involved is essential.  These projects should have a foundation based
on hard dollars, not temporary grant funding.  It is more of a disservice to begin an effective
program and not continue it than not to begin it at all.

According to Richard Fagan, Manager of the S.A.F.E. Program, the "program has to be
innovative.  It's got to be a program of attraction, not necessarily one of promotion."  Children
must want to be there since it can not be made mandatory.  Aggressive and innovative
programming must be planned.  These programs should be fun as well as enriching.

Community and corporate support are also of utmost importance.  The taxpayer/parent needs
to be aware of and understand the benefits and ramifications of the program.  They can provide
further encouragement to its participants and other resources to the overall program.


Contact Information

Richard R. Fagan
Manager S.A.F.E. Program
Department of Parks, Recreation
  and Entertainment
851 North Market Street
Jacksonville, FL  32202
(904) 630-3598
(904) 630-3567 faxKansas


Hiawathans Offering Positive Environments (HOPE)


Statement of the Problem

Hiawatha is a small rural town in northeast Kansas.  Hiawatha is not unlike the majority of
rural communities in the United States.  It has the following social concerns:  increased teen
pregnancies and date rape, escalated alcohol and other drug abuse, escalating cases of sexually
transmitted diseases, disrespect for public properties, increased juvenile crime, and the start up
of gang activity, like its urban neighbors.

Most people have turned to schools for the solutions to these problems, but the schools are not
the complete answer.  The schools need outside support, thoughts, and ideas for useful
programs to better address the social behavior of today's youth.  From this need, Hiawathans
Offering Positive Environments (HOPE) was formed in April 1992.


Goals and Objectives

The goal of HOPE is to form a community coalition that is a partnership of schools, parents,
and community players that addresses the social policy and environments of the youth in
Hiawatha.

The objectives of HOPE are to:  (1) become a working catalyst in the community to get
organizations to work together on youth programs addressing social concerns; (2) help procure
the funds and location for a community youth center; (3) create a parent network; (4) create
youth activities for Healthy Highs; (5) develop full-time prevention programs in the school and
the community using law enforcement personnel; (6) help support and develop community
policing efforts; (7) help to obtain a chemical dependency therapist to work directly with law
enforcement, inmates, juveniles, and their parent(s); and (8) work with the schools to enhance
the use of drug and alcohol monies.


Program Components

The Steering Committee  The steering committee of HOPE is a cross section of the community
that includes law enforcement, media, churches, public and mental health providers, school
administration and board members, youth, clubs and organizations, the National Guard, the area
prevention center, and various businessmen and women.  This committee is the "think tank"
for HOPE that discusses the social concerns of the community and assigns them to various
working committees such as student activities, parent network, or community relations.  The
steering committee designs some of the programs that are implemented in the community.

Many members of the steering committee are CEO's or employees of community organizations
or businesses that have access to youth resources or youth related programs.  It became
apparent early on that the HOPE organization would act as the catalyst to get area agencies to
work together on youth projects and parent education.

A Church Donation  When the community learned that the youth wanted a community youth
center, a local church donated $30,000 in start-up funds.  This caused businesses, individuals,
and clubs to donate money, labor, and materials to the center.  The youth center is run by a
combination of youth and adult board members who are responsible for activities planning,
maintenance, and fund raising.  The center is open daily during "at-risk" times in the evenings
after school and long weekend hours and serves 30 to 50 kids per night.  The youth center
offers simple, fun activities to all youths in the community.  The activities include bonfires,
sledding parties, skating, sports, and games.

Parent Network  Jump starting parents to be responsible and addressing parental concerns
through educational gatherings is the job of the Parent Network.  This network teaches parents
to look at themselves as role models.  HOPE is currently using the Parent University model
put out by the Kansas Extension on a regular basis to conduct their parent education, resources,
and workshops.  Resources for parents are also available at the local library in a designated
area.  A monthly newsletter is distributed by the project which addresses topics related to
parents.

Youth Activities  Youth activities are currently being carried out at three different levels.  The
grade school activities are coordinated and carried out by a committee of parents.  The middle
school has activities for grades five and six that are conducted by parents and school sponsors. 
The high school activities are currently planned by the youth center board, the community, and
parent sponsors.

Law Enforcement  It was noted early on after interviews with youth that law enforcement was
viewed as an adversary.  There were no prevention or related programs in the county regarding
law enforcement and youth.  This had to be addressed if the other programs were to have a
chance to succeed.

Money from Brown County, the City of Hiawatha, and the Bureau of Justice Assistance,
channeled through the Kansas Governor's Office for Drug Abuse, was awarded to Brown
County to have a full-time prevention officer in grades K-12 and in the community to help
with other youth programs.  Brown County was also awarded a DARE officer for the 1993 -
1994 school year.  The very positive results of the grant, and the gaps in service it identified,
led to three grants in 1994 - 1995.

The prevention officer grant was expanded into four Northeast Kansas counties, necessitating
two additional officers.  A new grant for community policing officers was awarded.  The
prevention officers receive information in class and privately and the community policing
officers further evaluate it.  The third grant was for a chemical dependency therapist who
would serve four counties out of the area mental health center.  This therapist is used by
stressed law enforcement personnel, inmates, juveniles, and their parents who need mental
health counseling.  A bonus to the grant is the help that the therapist provides to the prevention
officers in their daily classroom dilemmas.

School Alcohol and Drug Monies  The schools in Hiawatha have a drug and alcohol
curriculum for grades K-12, but the youth become tired of the same program, and by the time
they reach the seventh grade, peer pressure usually wins out over these teachings.  The HOPE
committee helps to evaluate programs and gives ideas for new programs to be used in schools. 
To combat disrespect for public properties, the middle school youth now are involved with
community projects or functions - two functions per year are mandatory for each student.

Leadership Training  Instead of picking a few top students, the school now does leadership
training for the entire seventh grade and their parents.  This involves all students in decision
making and starts parents networking for class functions.


Results and Impact

By creating the above programs, the project hopes to achieve the following results:  (1) the
community will address its social policy standards; (2) youth will be directly involved with
activities and decision making for the short- and long-term viability of the youth center; (3)
law enforcement will become active partners of parents and the school and friendly educators
of youth, with the impact of reducing juvenile offenses; (4) the school, with the help of the
prevention officer and community input, will be better able to address the whole agenda of
social concerns facing today's youth at all grade levels; (5) the overall impact will be a
community whose organizations and resources work in a partnership to create a positive
environment for youth.

Implementation Problems and Successes

Community perception of HOPE  When a community coalition is formed to address a subject
not previously addressed, such as alcohol consumption by youth, a somewhat skeptical
perception of the coalition is inevitable.  Addressing social policy in a community takes time
and much communication to answer peoples' questions about the organization.  Once the
community realized that HOPE wanted to help youth in a positive manner, many people
offered their time and resources to help expand the project base.

Funding  When forming a coalition, funding is always a major concern.  Initially, HOPE
operated from donations from individuals, clubs, churches, schools, and businesses in the
community.  This proved to be the stimulus needed to get the coalition rolling, creating local
ownership.  HOPE is now also funded through fundraisers and Federal grants.

Youth Center  The Baptist church donated $30,000 to start the youth center.  Several thousand
more dollars came from the community in donations, equipment, labor, and volunteers.  The
youth center project was successful until the summer of 1994, when a problem developed that
resulted in many changes.  Some urban youth with gang experience moved to Hiawatha and
started forming gangs.  They tried to take over the youth center, and most of the other youth
stopped attending functions at the center.  The center was closed while law enforcement broke
up the gangs.  When the center reopened, it had an expanded board of both youth and adults
and was much more structured.  The youth center now conducts high school and middle school
activities (Healthy Highs) and is currently looking at starting a youth job service center and
a day care center to generate funds for the youth center and young people in the community. 
The center has helped many at-risk youth with no parent at home.  The center is considering
a tutoring program for these students.

Law Enforcement  The HOPE program's work with law enforcement of all forms (KBI,
highway patrol, sheriff, city police, and police auxiliary) has proven to be rewarding for many
parties.  The first grants for the full-time prevention officers and the DARE officer opened up
a new arena in prevention, education, and community programs.  The level of success of these
various programs will not be known for a long time, but the results from the first two years
are very promising.  The DARE program is now being funded by the City of Hiawatha, and
another officer has been trained to be a DARE officer.  The program hopefully will be
presented to additional grades in coming years.

The positive relationship between parents, youth, and law enforcement led to the community
policing grant.  These officers now have communication lines that were non-existent before the
prevention officers started their interventions and apprehensions.  They are receiving
community support.  The community wants more interventions and is looking at a drug dog
as their next project.  The police and sheriff's departments are also considering a cadet program
for youth.

At first, some officers did not understand the work of the prevention officer.  This created in-
house and departmental stress, because the prevention officer was not helping with
interventions.  This problem was solved by creating a committee outside of the police
department to listen to the officers' complaints and mediate the situations.  Meetings were also
held with other officers to explain the role of the prevention officer.  In addition, the
prevention officer was made a representative of the sheriff, so that the sheriff would feel less
threatened by the program.  Another problem was that the prevention officer initially needed
instruction regarding some of the cases in the schools.  This led to the addition of a chemical
dependency therapist in conjunction with the local mental health center to the program.  This
therapist has helped law enforcement officers with their job stress and counsels inmates,
juveniles, and prevention officers.  This therapist is also available to counsel parents.  The overall success of the programs by law enforcement has benefited both law enforcement and
the community.

Effect on Schools  Since the formation of HOPE, schools now have a partner in parents and
the community to address social concerns.  One success of the program is that school
administrators can visit with law enforcement officials regarding at-risk or problem youth.  The
alcohol and drug-free schools' monies committee has developed new programs concerning
cultural awareness, leadership, decisionmaking, and an evaluation of existing programs.  It has
allowed parents the opportunity to learn how to actively chaperon social functions and school
activities.

Parent Network  This has been the toughest part of HOPE to keep functioning.  Regular parent
meetings were not successful, which is why the program has adopted the Parent University
model.  This allows for mini workshops on parental topics, a monthly newsletter on parent-
related subjects, and an annual Parent University showcasing all resources available in the
community for parents.  These activities are growing in number, and parents have already
started support groups.  It appears after two years that the parent network will continue to exist
and expand.  Principals call or send letters to recalcitrant parents to continue their participation
in the program.

Successes and Accomplishments

When HOPE began, many people thought it would not last one year.  However, it has almost
completed three years as a community coalition.  HOPE has continued to grow and expand
programs where a major social concern exists.

HOPE Awareness Week was held in March 1994.  This week of activities was used for
celebration, education, and fun for all ages.  The events included a volunteer dinner, a
motivational speaker, parent education, and a Kansas City Chiefs benefit basketball game with
proceeds going to the prevention officer program.

HOPE helped obtain enough voter petitions to get the City of Hiawatha to change a city
ordinance that allowed alcohol to be consumed at the city ballpark.

HOPE organized a National Guard Fly-In in October 1994.  This helped to kick off Red
Ribbon Week and the Parent University.

HOPE has also helped the State of Kansas start a statewide parent network using the HOPE
organization structure as a start up model.

The DARE program has been expanded to include sixth and seventh grades as well as the fifth
grade.

The juvenile offenses during the five years prior to the grant averaged 104 offenses yearly in
Brown County.  Twenty-one months into the program, the juvenile offense rate is now at 50,
or a 50% reduction.  The working relationship created between the sheriff, city police, school
administrators, teachers, counselors, parents, and youth has benefited the whole community. 

The prevention officers had run a total of 269 programs in 22 schools by January 1995.  The
programs have been delivered to an estimated 5,000 students.  Many of these students have
received more than one program. 

Prospects for Replication

There are several elements required for a community to start a comprehensive coalition such
as HOPE.  There need to be many interested people, both youth and parents.  The adults need
to come from a cross-section of the entire community and be both administrators and workers. 
They can be recruited through advertising of the HOPE program and its components.  A retreat
for these individuals needs to be held in order to discuss their community and focus on the
pertinent issues.

Once the people see, understand, and are committed to addressing the social concerns in their
community, a coalition can be formed.  Once the coalition is formed, it needs to get all
organizations concerning youth in the community involved.

A positive relationship between law enforcement, youth, and parents is imperative for social
programs to have an impact on a community.  Law enforcement has to be involved at all levels
for prevention programs to be effective.


Contact Information

Stephen L. Smith
Chairman
101 South 6th Street
Hiawatha, KS 66434
(913) 742-2126
(913) 742-4551 faxLouisiana


CODE 6:  A Collaborative Effort To Fight Violent Crime


Statement of the Problem

The Parish of Jefferson, Louisiana is a suburban community adjacent to the City of New
Orleans.  The Jefferson Parish Sheriff's Office (JPSO) is the main law enforcement agency in
the Parish and is the second largest police agency in the State.  The JPSO is a multifaceted
police agency providing a full line of services including patrol, investigations, forensics, and
corrections.  The Jefferson Parish District Attorney's Office (JPDA) represents the people of
Jefferson Parish in the 24th Judicial District of Louisiana.  The JPDA has jurisdiction over all
criminal matters arising within the Parish, including felony and misdemeanor charges, parish
ordinances, juvenile cases, and traffic offenses.

The primary mission of police service is to protect the public from violent crime.  There are
many ways to meet this challenge, but the most effective means to impact violent crime is to
deter those intent on its commission.  Deterrence can be described as the state of mind whereby
a potential offender resists the opportunity or impulse to commit crime for fear of apprehension
and punishment.

Unfortunately, as it relates to the habitual, violent offender, deterrence is a bankrupt theory. 
As studies and experience have demonstrated, the true recidivist is a criminal by choice who
has demonstrated a reluctance or inability to reform.  As a result, the only meaningful method
known of interrupting the criminal careers of these hardcore offenders is through a process of
selective incapacitation.

It has long been established, both academically and in law enforcement circles, that a relatively
small percentage of the population, estimated at 6%, is responsible for a large and
disproportionate share of crime in general, estimated at 60%, and of violent crime, estimated
at 75%.  This minority of offenders is often referred to as the CHRONIC 6%.  So great is the
impact of this element of society that if law enforcement officers did nothing more in the war
on crime than focus attention on this element of society, communities would experience an
immediate and dramatic reduction in the incidence of violent crime.

The problem with most strategies that attempt to focus on recidivists is that they fail to
objectively and correctly identify the true impact players in the community.  For the most part,
the decision to target a certain individual over another is based on a subjective "gut feeling." 
If ten people were involved in the decisionmaking process, ten different targets might be
selected.  In an effort to systematically identify and neutralize this 'cream of the rotten crop,'
the Sheriff and District Attorney of Jefferson Parish, in conjunction with the municipal police
departments, established an elite police/prosecutor unit designated "CODE 6."  A cooperative
effort now exists in Jefferson Parish to negate the effects of this chronic minority through
analytical incarceration and prosecutorial strategies.


Goals and Objectives

The goal of the program is to reduce significantly the incidence of predatory crime perpetrated
by violent recidivists through a process of objective identification, selective incapacitation, and
vertical prosecution.


Program Components

On October 12, 1992, the CODE 6 Program was established as a joint police/prosecutor
initiative comprising the Sheriff's Office Career Criminal Intercept Unit (CCIU) and the
District Attorney's Office Vertical Prosecution Unit (VPU).  The program is centrally
headquartered within the Sheriff's Office Investigations Bureau, with satellite offices located
at the Jefferson Parish Correctional Center.

Offenders are objectively identified through the use of an Intensive Criteria Rating Scale,
which comprises seven distinct categories, each having a corresponding point value.  Twenty
points is the maximum number an individual can attain in the system.  A higher point total
indicates a greater propensity for violence.  The criteria takes into account both felony arrest(s)
and/or conviction(s).  It evaluates the total criminal history accumulated by the offender
including the instant or pending charge(s).  Heavy emphasis is placed on crimes involving
violence, drugs, and weapons.  Attention is also given to the career criminal having obtained
five or more felony arrests in at least three different crime categories.  In addition, it notes
whether the offender has obtained a felony arrest within thirty months of the instant charge and
whether the offender has a substantial juvenile record.

Next, offenders are selectively incapacitated by being physically prevented from committing
future criminal acts.  CODE 6 accomplishes this systematic quarantine by appealing to
magistrates to enhance bonds based on either the severity of the instant charge or the criminal
history of the offender as reflected by the point total accrued by applying the Intensive Criteria. 
Perpetrators are vertically prosecuted by a CODE 6 special prosecutor who manages the case
from screening through trial.  Vertical prosecutors make extensive use of the State's Habitual
Offender Law which enhances sentences through multiple billing.

The notification process begins when an investigating and/or arresting officer contacts
communications and requests a CODE 6 criminal history of an individual.  Communications
enters the name, race, sex, and birth date of the individual into a metropolitan-wide criminal
information network computer.  The computer displays pertinent information on the individual
which includes a concise criminal history.  If the individual in question has attained at least
five felony arrests and/or two felony convictions, he/she is flagged as a possible career
criminal.  If the individual is the subject of a felony arrest(s), all paperwork is immediately
forwarded to the Career Criminal Intercept Unit for analytical processing.  At this stage, all
potential candidates are evaluated by the Intensive Criteria Rating Scale to determine the extent
and degree of documented violence.

In the tracking portion of the program, a CCIU member attends magistrate court daily, armed
with all available information obtained during notification on all potential targets.  It is at
magistrate court that the CCIU will selectively incapacitate targets by making appeals for
enhanced bonds even though the instant charge may be relatively minor.  Tracking also
includes the assigning of a CCIU investigator to work one on one with a vertical prosecutor
to perform any research and investigative functions deemed necessary by the vertical prosecutor
to enhance the probability of conviction.

In the final phase of the system, all available information on the targeted recidivist is forwarded
to vertical prosecution for screening.  At this time, based on a number of variables including
the criteria score and case quality, the target is either eliminated from consideration, the case
transferred to the regular screening division of the D.A.'s Office, or accepted for vertical
prosecution.  If accepted, the target may be tried by the VPU.  These defendants rate high on
the criteria and have one or more prior felony convictions that make them candidates for
multiple billing under the habitual offender law.  Other accepted defendants who would have
been tried by a vertical prosecutor, because of mitigating factors (i.e., sheer volume or no prior
convictions), may be tried by regular division assistant district attorneys with special
supervisory instructions regarding pleas or disposition of sentence.


Results and Impact

Performance Measures

To date, the CODE 6 Program is achieving its stated goal of significantly reducing the
incidence of predatory crime in the community by objectively identifying, selectively
incapacitating, and vertically prosecuting violent recidivists.  All qualitative data on targeted
individuals are loaded into the Sheriff's Office main frame VAX Computer system.  Data
retrieved from the system on a monthly basis reports the following short list:

          total number of Possible Career Criminals arrested and booked at the
           correctional facility by felonies, misdemeanors, and attachments;
          total number of bond enhancements and amounts;
          average length of incapacitation of potential candidates at the correctional
           facility;
          total number of candidates accepted for vertical prosecution;
          total number of trials, pleas, convictions, or acquittals;
          average number of years per sentenced target; and
          average length of time from acceptance to trial.

Implementation Problems and Successes

As in any multiagency initiative, certain compromises must be made.  Clear and concise areas
of responsibility must be worked out well in advance.  In addition, emphasis must be placed
evenly on all areas of the process.  At first, too much emphasis was placed on arrests and not
enough on convictions.  When the judges weren't enthusiastic about the program, more
attention was distributed to convictions to even out the distribution of positive publicity.

One problem encountered by the CODE 6 program is that criminals are filing motions to
expunge their records so that it cannot be determined if they are eligible for the CODE 6
program.  District Attorneys are still trying to decide if this is legal.  Another problem is that
there is no multiple bill law with regard to juveniles.  They can be identified as CODE 6
perpetrators, but they can't be kept incarcerated for a great length of time.

Successes and Accomplishments

From October 12, 1992 through December 31, 1994, the CODE 6 Program has achieved some
impressive results.  It is important to note that from its inception until November of 1993, the
Vertical Prosecution Unit consisted of one prosecutor.  Since that time, the number of vertical
prosecutors has increased to three.  The Career Criminal Intercept Unit has steadily grown to
its present compliment of twelve personnel.

From October 1992 through December 1994, the CODE 6 Program compiled the following
statistics:

          14,152 possible career criminals arrested:  5,324 felony arrests, 3,980
           misdemeanor arrests, and 4,848 attachment arrests;
          307 bond enhancements totaling $76,715,414;
          127 candidates on average incapacitated at the correctional facility;
          419 candidates accepted in the program for vertical prosecution;
          235 total convictions;
          average sentence per conviction was 33 years (excluding 4 life sentences) in the
           category with more severe cases and 8 years in the category with less severe
           cases; and
          4.8 months average time from acceptance to trial.

Prospects for Replication

The prospects for replication of this program are good.  During the planning stages, program
managers should attempt to include all elements of the law enforcement community, including
the judiciary.  Frequent meeting and recognition of all parties involved is a must.  The systems
aspect of the program can be manual or computer generated, depending on the sophistication
of the agency.

The CODE 6 Program is working because it is a quick, simple, and budget-friendly method
of identifying and removing habitual, violent offenders from the community.  CODE 6 targets
violent recidivists, moves them quickly through the criminal justice system, and removes them
from society. 


Contact Information

Captain Vince Lamia
Commander
Career Criminal Intercept Unit
725 Maple Avenue
Harvey, LA 70058
(504) 364-5491
(504) 364-5367 fax

Robert Grant
Vertical Prosecution Unit
725 Maple Avenue
Harvey, LA 70058
(504) 364-5491
(504) 364-5367 faxMassachusetts


Triad and Community Policing:  The Massachusetts Model


Statement of the Problem

According to data compiled by the American Association of Retired Persons (AARP), by the
year 2030 there will be 66 million Americans 65 years of age and over, nearly 22% of the
entire population, up from 31 million or 12 1/2% in 1989.  With the certainty of that trend's
continuance, law enforcement and national elder lobbies have focused research and media
attention on this section of the population.

The American public views the older citizen as highly vulnerable to and a frequent victim of
criminal activity.  Many seniors hold this view as well, and as a result live in a state of fear
that far outweighs the reality of their vulnerability.  Television and newspaper accounts of
criminal activity often introduce hyperbole; the fear of possible victimization mounts
unrealistically.  The anxieties which accompany these perceptions reduce the quality of life for
older persons.

While most studies indicate that elders are victimized less often than any other age group, the
economic, physical, and psychological consequences of those victimizations are more
debilitating.  A purse-snatching experienced by a younger person, although serious, is not as
likely to have the severe consequences that would be more likely with an elder.  For an elder,
limited fixed income makes replacing what was stolen more difficult; possible physical injuries
resulting from the assault heal much more slowly; and emotional consequences could lead to
increased isolation and a reduction of social support.

An elder victimized while in public frequently decides to isolate her/himself more completely,
especially at night.  This reduced vulnerability may account somewhat for the finding that
those over 65 are less often victimized than other age groups.  Staying at home does lessen the
chance of being assaulted, but it also can reduce significantly the quality of one's interactions. 

However, the home is not always a haven.  Victims of elder abuse face the burden of having
to choose whether to report the abuse to authorities, thus jeopardizing family members and
their own ability to remain at home, or subject themselves to continued abuse.  If they report
the abuse, they face the question of who will care for them.  If they remain at home, they
wonder how the perpetrator will retaliate.  If they do not report the abuse, they face continuing,
and often escalating, mistreatment.

Frauds and scams increasingly target older citizens.  According to Doug Shadel, economic
security/consumer representative with AARP, while seniors compose 12-13% of the population,they are the targets of nearly 1/3 of all reported frauds -- telemarketing, postal, and door-to-
door -- and 60% of all health frauds.  Reasons cited for the high incidence include the
likelihood of seniors having considerable savings, lump-sum pensions, or insurance premiums;
the strong possibility that seniors with fixed incomes are more susceptible to get-rich-quick
schemes; and that they are more likely to be home, often alone, when swindlers call.  

As criminal activity in society continues and fear intensifies, society and law enforcement have
an obligation to address the security needs of these older citizens.  The establishment of the
Triad program in a community, county, and/or State is a realistic, cost-effective method of
addressing those needs.


Goals and Objectives

In serving Franklin and Hampshire Counties in western Massachusetts and their citizens, the
Triad program has the following goals:

          to reduce criminal activity which targets older Americans; 
          to alleviate seniors' fear of victimization, and build confidence in their ability
           to reduce vulnerability; and
          to expand collaboration between law enforcement, human service providers, and
           seniors.

The objectives of the program in Franklin and Hampshire Counties to accomplish the above
goals are to:

          establish a community format to increase interaction between seniors, law
           enforcement officers, and human service providers;
          educate seniors, officers, and providers concerning each others' responsibilities
           and advantages gained through collaboration;
          provide education on crime prevention and personal/home safety; 
          increase reporting by seniors to police of suspicious/criminal activity;
          offer seniors leadership training and the opportunity to lead; and
          improve senior awareness of services.


Program Components

"Triad" is a local community policing initiative among seniors, law enforcement, and human
service providers to increase safety and confidence for older citizens through education and
crime prevention.  In each community Triad is implemented through a SALT (Seniors and Law
Enforcement Together) Council which is composed of seniors, representatives of community
service organizations, and local and county law enforcement officers.  Frequently involved are
Councils on Aging, Home Care and senior housing organizations, protective services, AARP,
clergy, and business leaders.  Law enforcement representation includes local police, the District
Attorney, and the Sheriff.

Implementation of Triad consists of learning the needs of the community's senior population
through the SALT Council and then working cooperatively to seek and put into place solutions
to those needs.  Surveys and questionnaires often are utilized to help determine the concerns
of older residents.  Once needs have been pinpointed and prioritized, the Council regularly
convenes a forum to decide how best to accomplish the specified goals.

A responsibility of the SALT Council is to see that information that originates in the Council,
or that results from its initiatives, is circulated throughout the community to assure that those
who would most benefit from the information receive it.  The media -- print, radio, television -
- and newsletters, pamphlets, and other publications, civic meetings, community meals, and
workshops become avenues for distributing information.

Locally, implementation and maintenance of a SALT Council require little money other than
that which allows professionals sufficient time to meet and to fulfill the Council's agenda. 
When police departments have required funding to provide for a Triad officer, State grants
have been helpful.  On the county level, Triad in western Massachusetts operated for two years
with a volunteer part-time coordinator who assisted the District Attorney and the Sheriffs.  As
the program grew, the need for a full-time person led to a grant application to the
Massachusetts Committee on Criminal Justice (MCCJ).  A requirement of the $50,000 grant
was that one quarter of the total was to be provided by the District Attorney and Sheriffs. 
Renewal of the grant for a second year will necessitate that one-half of the total be obtained
from sources other than MCCJ.

The advantages of a SALT Council to a community are numerous.  For seniors, the Council
provides the opportunity to meet directly and regularly with local police officers.  Citizens are
more inclined to turn to the police when they know officers as people and not simply as
uniforms.  Consequently, police departments are more likely to be contacted by people who
previously may have been reluctant to involve the police.  Seniors also become more aware
of services to which they and their peers are entitled and how to access them.  They become
more aware of criminal activities and of steps to avoid victimization.

Police officers benefit by becoming more aware of the fears and perceptions of their senior
residents regarding crime and victimization.  Frequently, police chiefs have expressed concern
that seniors, more than any other age group, are reluctant to involve the police when it would
be appropriate for them to do so.  Whether many seniors are concerned that they will bother
the police whom they may believe have more important things to do, or whether they are afraid
of recriminations if they notify police of suspected criminal activity, older citizens frequently
are hesitant to call the police.  Improved communication and sharing between seniors and
police officers can work to counteract that tendency.  Increased respect for the department from
members of the community develops as a result of the commitment that has been shown
through Triad. 

Human service providers gain from increased interaction and cooperation with law enforcement
and from improved distribution of services.  Council on Aging directors become more
conscious of the needs of the seniors they serve concerning the issues of vulnerability to crime
and victimization.  Protective services and police departments gain an improved understanding
and appreciation for what each other's tasks and challenges are.  Advantages to be gained
through collaborative efforts become more apparent.


Results and Impact

Performance Measures

Full implementation of Triad, consisting of SALT Councils in each of the 47 communities, is
to be completed by July 1995.  Indicators of Council effectiveness are:

          the level of reporting to police/protective services by seniors of suspected
           criminal activity; 
          evidence of senior initiatives to plan and to implement workshops to focus on
           issues; 
          elements of elder security:  personal protection, outreach to isolated elders,
           vulnerability to fraud, and home/neighborhood protection; and
          enhanced senior involvement in the community evidenced by media contact,
           participation in workshops, and involvement with local, State, and national
           representatives.

Measures of the effectiveness of the program have been primarily qualitative.  Interviews with
police officers, service providers, and seniors have demonstrated a belief that Triad is needed,
welcome, and effective.  Quantitative measures have included local questionnaires and their
results, newspaper and senior newsletter articles, crime spots on local radio, panel interviews
on cable access television stations, and workshops.

Implementation Problems and Successes

The principal difficulties encountered in implementation efforts have been "turf" issues.  As
the primary law enforcement organization of the Commonwealth, local police departments are
committed to maintaining that position and can become defensive if another department is
suspected of infringing on their territory.  Open discussion between police, sheriffs, and district
attorneys, and a commitment to keep chiefs informed of efforts and initiatives designed to
assist, not to dominate or replace, have led to increased respect and cooperation.  

Successes and Accomplishments

Virtually every community to which Triad has been introduced has expressed a willingness to
implement the program.  This reflects both the perceived need to approach crime problems collaboratively and the willingness to attempt it.  The statements summarized below are by
seniors from Triad communities in Franklin County.  They are characteristic of feelings
expressed by seniors throughout both counties. 

      "I don't feel as fearful.  I feel better qualified to cope through education.  It's a very
      valuable program.  I think that the other people I've talked to feel the same way....  I
      think if people know we have a new kind of senior out there, that we are not as easy
      a prey, and they (the seniors) know ways of taking care of themselves, I really think...
      down the road it will be a very valuable crime fighter....  I have more confidence; I'm
      not nearly as timid about going out now."  Dorothea Hochrein, 74.

      "I'm alerted, and I tell other people what I've learned.  My impulse now is to call the
      police right away.  Before I might have thought I was just being neurotic where now
      I'd just call them right up.  Some of the seniors are inclined to say, `I don't want to
      bother the police,' where now we are being told, `Bother us; that's what we're here
      for'...  I feel a lot different toward the police now, much more secure."  Mary Poirier,
      62.

      "I know I could go into the police station at any time and have someone help me and
      give me good advice.  Or I could stop a policeman on the street.  It's just more
      comforting, more reassuring knowing that you can talk to people.  Yes, I am much less
      fearful....  To be able to sit each month with the police chief and a detective and to
      have them listen to you is great."  Fran Callaghan, 82.

      "I've lived here two years.  I have people living right outside my door who wouldn't
      even talk to me; they didn't even say `Hi....'  Now they stop me and say, `You had
      those (no soliciting) signs put up.  We think that's a wonderful idea.'  I told them,
      `Don't wait to get robbed; find out how to protect yourself.'  Now they're more
      outgoing.  It (Triad) is opening people up more....  Where I used to live (New York
      City) we never had positive relationships with the police like we are having now." 
      Vincent Capasso, 72.

In addition to the SALT Councils that have been implemented, a significant development of
the Triad program in western Massachusetts has been the cooperation between police and
sheriffs' departments to reach out to seniors who are living alone and in isolation.  When
police officers have been unavailable due to staff shortages and/or other commitments, a
sheriff's deputy has been able to respond.  Seniors have found home visits to be reassuring for
several reasons:

          the presence of a patrol car in the neighborhood is a reminder of police interest
           and their commitment to deter crime;
          the visits help to alleviate the fear an older person can experience while living
           alone and can reduce significantly the feeling of isolation;
          a visiting officer can make suggestions as to what the resident can do to make
           his home more secure, educating the senior concerning what steps can be taken
           to increase safety; and
          an officer trained in detecting frauds and scams that target elders can detect
           signs of possible involvement and can dispense information to deter future
           defrauding.  

Triad SALT Councils have provided a base for the presentation, dissemination, and discussion
of information to counter vulnerability to fraud.  With direct access to seniors, police, and
human service providers, Councils have sponsored presentations that assure current and
accurate information on past scams and scams that currently are operational in an area. 
Through the cooperative resources that the Councils provide, pamphlets can be prepared,
distributed, and discussed by utilizing media outlets.  

Another issue affecting older citizens on which Triad is having an impact is that of mixed
population housing.  As State hospitals and institutions have been closed throughout
Massachusetts, community resources have been called upon to provide additional services
including housing.  Often housing complexes constructed exclusively for elders are being
opened to younger individuals with special needs and their own personal and social habits. 
The Triad SALT Councils are bringing together the groups which are affected.  Discussion of
what is not working and what could lead to improvements is beginning.

Of issue to police officers, Emergency Medical Technicians (EMT's), and firefighters who
respond to emergencies in private residences is the availability of vital medical information. 
For senior residents who are more likely to have particular medical conditions that could affect
their treatment, the accessibility of that information is essential for saving time and lives. 
Several SALT Councils in Western Massachusetts have adopted an initiative from the Triad
in Bridgeport, Connecticut by creating a "file for life."  The plastic file has a pocket which
contains vital medical and emergency information kept on an updatable form.  Highly visible,
the file attaches to the outside of the refrigerator door with a magnet.  Officers and EMT's will
know where to look for medical information including whom to contact on the senior's behalf. 
Efforts have begun through local Councils on Aging to have files distributed throughout the
State. 

Other Triad initiatives have included home and personal safety seminars and police reports on
the nature of criminal activity in the community.  Accurate information from police
departments and from protective service agencies is helping to reduce fear and to strengthen
the sense of community.  SALT Councils have sponsored presentations on shopping rights,
how to address conflicts between seniors and young people, street lighting shortages,
telemarketing fraud and telephone technology, town by-laws concerning solicitation, the
advisability of utilizing personal and home security devices, and self-defense.  Some police
departments working with local Councils have begun to offer training for seniors to assist
officers with home security checks, with the utilization of Operation Identification to deter
house break-ins, and with outreach. 

Through January 1995, 30 of the 47 communities that comprise Franklin and Hampshire
Counties have been introduced to the Triad program and are in various stages of
implementation.  In November 1994 the Northwestern District Attorney and the Sheriffs from
the two counties sponsored a statewide introduction of Triad which was attended by over 200
people from Massachusetts:  police officers, sheriffs, district attorneys, Council on Aging and
AARP representatives, and protective service personnel.  As a result, a dozen communities
from neighboring counties have asked for assistance in beginning Triad, as have representatives
from other States.

Prospects for Replication

The National Sheriffs' Association (NSA) provides a full-time national Triad coordinator to
facilitate the creation of a Triad program in any State.  NSA sponsored a national conference
in October and will host a second in St. Louis in April.  The conference includes workshops
on how to begin and to maintain SALT Councils.

Several counties in Massachusetts as well as other States have asked for assistance in
introducing Triad.  Recommendations to implement the program throughout Massachusetts
have come from a Governor's Task Force on Mixed Population Housing and from the State
White House Conference Subcommittee on Crime and Elders sponsored by the Executive
Office of Elder Affairs.


Contact Information

David P. Lloyd
Triad Project Coordinator
Northwestern District Attorney
One Court Square 
Northampton, MA  01060
(413) 586-9225
(413) 584-3635 faxMissouri


Jackson County Drug Abatement Response Team (DART)


Statement of the Problem

The Jackson County Drug Abatement Response Team (DART) was developed as an
interagency, intergovernmental, community-based response to the drug house problem in
Jackson County.  The general principle behind the creation of DART was that the most
effective weapon against drug houses is the community.  Since this was not just a county, city,
or one neighborhood's problem, it was envisioned that a cooperative effort among all groups
adversely affected by this problem would provide the most effective method for eliminating
it.  DART was created in 1991 through the assistance of a grant from the State of Missouri and
through funding from the Jackson County Anti-Drug Sales Tax (commonly referred to as the
Community Backed Anti-Drug Tax, "COMBAT").  It should be noted that Jackson County,
Missouri is one of a very few places in the United States that has decided to tax itself to help
eliminate the county's drug problem through enforcement, prevention, and treatment.


Goals and Objectives

The goal of DART is to provide a method to quickly shut down drug houses by citing city
housing code and fire code violations, thus bypassing the more traditional police methods that
take longer and sometimes are less effective.  DART's primary goal and function is to take
measures to identify and remove illegal drug activity within the community.


Program Components

DART is a multiagency, multijurisdictional program that was developed to combat the
increasing problem of drug houses within Jackson County.  DART's primary role is to provide
a quick, alternative method to close drug houses using the resources of county and local
government, the citizens of the community, and private sector utility companies.

Before the creation of DART, it was determined that drug trafficking operations within Jackson
County were located predominantly in residential properties and occasionally in business
establishments.  Illegal drug distribution and associated activities present safety and health
issues not only for those individuals who are involved in the illegal activity, but also for those
innocent individuals who might be impacted through community ties -- either residential,
educational, family, business, or otherwise.  Based on the increasing presence of drugs and
drug-related activity throughout Jackson County, it became apparent that in order to have an
impact on the issues and circumstances created by illegal drug activity, there was a need for
increased community involvement.  The need was also identified for the involvement of public
organizations which possessed the resources to address not only individual criminal activity but
also illegal activity based in whole or in part on the actual physical structure of properties.  In
recognition of this, the DART concept was developed with the commitment to identify and
apply all legal means available to eliminate the entire spectrum of problems associated with
properties being used for illegal drug activity.

The Drug Abatement Response Team (DART) represents a very unique and innovative
approach to identifying and addressing issues and circumstances created by the illegal use of
properties for the possession, manufacturing, storing, or distribution of controlled substances. 
DART's primary goal is to identify and remove illegal drug activity.  In doing so, DART relies
on the collaborative effort among the Jackson County Prosecutor's Office, Kansas City, the
Kansas City Fire Department, the Kansas City Police Department, the Jackson County Sheriff's
Department, and the citizens of Jackson County.

Each member of the DART Team provides access to the services, resources, and expertise of
its organization.  The Jackson County Prosecutor's Office houses the DART administrative
office and serves as a focal point.  The Prosecuting Attorney's DART staff consists of an
Assistant Prosecuting Attorney assigned as DART Coordinator, an Investigator, a Community
Liaison, an Administrative Assistant, and a Law Intern.  Kansas City, through its Neighborhood
Preservation Department, provides a DART Housing Codes Inspector.  The Kansas City Fire
Department provides a DART Fire Codes Inspector.  The Kansas City Police Department
provides investigative and responsive services through the Street Narcotics Unit, the Drug
Enforcement Unit, and various Patrol Divisions.  Finally, the Jackson County Sheriff's
Department provides police interaction and representation of the municipalities in Eastern
Jackson County through the Jackson County Drug Task Force.

The DART process begins with members of the Jackson County community.  In fact, except
for instances when unrelated police contact with a property leads to the discovery of illegal
drug activity, all DART action begins with a member of the community reporting the suspected
activity.  This reporting occurs through telephone calls made directly from concerned citizens
to the DART Office, the Police Department, or various community organizations or through
direct contact with the community of DART staff at community meetings and events. 
Additionally, DART has been assisted by the development of community-oriented policing
programs such as Community Action Network (CAN) Centers and Community Action Teams
(CAT).  These community policing components have been instrumental in the identification
and elimination of drug houses and other buildings which have been used as part of the drug
trade.

Once a property has been identified, it is targeted for investigation by the appropriate narcotics
division of the police agency which has jurisdiction on the area where the property is located. 
When the drug activity is confirmed, documentation is then forwarded to the Prosecutor's
Office for immediate DART follow-up action.

DART follow-up action begins administratively with a county record check for the
identification of the legal owner of the targeted property.  A notice letter regarding the illegal
activity is sent which includes a request for abatement of the activity and the possible
consequences of failure to abate the problem.  An inquiry is made into the criminal history of
the residents and/or parties associated with the property along with a review of prior DART
contact with the property.

The primary purpose of the DART inspection is to identify municipal housing and fire code
violations and to review those violations as a potential means for immediate closure of the
house.  According to Willis Toney, Chief Drug Prosecutor for the project, "What we (DART)
discovered is that people who operated out of drug houses had one fatal flaw, they never kept
the houses up like most people would."

When a property is posted, it is deemed unsafe for human occupancy.  An order to vacate the
property, which specifically sets out the code violations, is forwarded to the owner.  The owner
is then required to make the necessary improvements and repairs on the property before it is
reinspected and recertified for occupancy.  As long as the property is posted and not recertified,
any entry onto the property is deemed illegal and those persons found at the property are
subject to arrest for trespassing.  Work access permits are granted to owners to allow for repair
and the removal of property. 

In addition to the notice of violations and order to vacate notice sent to the owner from the
DART inspector, the owner is also sent a notice letter of illegal drug activity from the Jackson
County Prosecutor's Office.  This notice letter is sent via certified mail and is an official
request for the owner to take immediate action to abate the activity.  Enclosed in the letter is
the applicable Missouri statute as well as an explanation of the potential jeopardy to the
continued ownership and control of the property if drug activity continues.  "When property
owners start losing their property because they're letting drug deals take place in their property,
they become aware and they stop it," says Toney.

The interaction between the DART Team and owners usually results in a voluntary resolution
of the problem created by the illegal activity.  At times, the tenants are evicted or voluntarily
vacate the premises.  However, on those occasions when the owner is directly involved, or
there is a recurrence of drug activity from rental property, legal action is pursued by way of
Petitions for Public Nuisance or Criminal Activity Forfeiture Actions. 

Houses that are vacated under court order are boarded up for six months.  If after this time,
the landlords cannot be located, the houses are demolished or put up for public auction.  Some
of the abandoned houses are given to the Community Development Corporation, a program for
many different kinds of offenders that teaches construction skills.  The offenders rehabilitate
the dilapidated houses and sell them.  The money earned from the resale goes to the
Community Development Corporation.


Results and Impact

Performance Measures

The DART program's success is measured by the reduction of:  drug trafficking in the
previously affected area; the number of open drug houses; the numbers of police "calls for
service" in a particular area; the number of incidents of violence or drug-related crimes in a
particular area; and crime overall in the targeted areas.

Implementation Problems and Successes

The challenge to DART's initial development was increasing community involvement in the
identification and investigation of the targeted properties as well as increasing interagency
awareness, cooperation, and utilization.  While resource development was crucial in DART's
development, it was also important to identify those resources already in existence for possible
utilization and expansion while keeping in mind the goal of providing immediate, short-term
as well as long-term methods for the removal and/or closure of properties being used in drug-
related activities. 

The difficulty in the implementation of DART centered on maintaining a balance within the
legal parameters of the State, county, and local organizations that comprise DART.  There
existed a general hesitation to embrace this very unusual, innovative, and unchartered project
which likely stemmed from an inability to fully visualize the roles and significance of each
individual organization.  Nevertheless, after a series of interagency brainstorming sessions and
the continual identification and addition of other organizational resources, DART became a
full-fledged program.

An ongoing problem of the program is prioritizing neighborhoods to investigate.  When DART
began, the first areas entered into were the Weed and Seed areas because of funding issues. 
The program has expanded its range based on where the calls for help come from.  Another
problem was the political aspects of who would receive credit for the reduction in crime.  A
roundtable was held in which all participating parties received credit for the successful
operations, and the program was billed as a joint operation.

A final challenge was the integration of the most significant DART partner, the community. 
It was of paramount importance to stimulate the community to call in and report suspected
illegal drug activity.  A mechanism for receiving and documenting that information also had
to be developed.  Data Research and Analysis for Geographic Narcotics Enforcement Targets
(DRAGNET), which was already being used by the police department, became and remains
a very productive resource and tool for this purpose.  Information generated from community
telephone calls is used by the Street Narcotics Unit (SNU) of DART in targeting properties for
investigation.  Once a property has been successfully investigated by SNU, via an undercover
purchase of illegal narcotics and the subsequent execution of a search warrant, the other DART
partners take action.  Based on the initial police investigation and city and county follow-up,
the Jackson County community has developed a greater level of confidence and security in
their anonymity in reporting the activity, but also pride in their involvement in the closing of
the property.  Closing the problem property is the first step in restoring the quality of life in
the affected areas.

Successes and Accomplishments

DART allows citizens to have direct input in the war on crime within their communities. 
When positive steps are taken to close a drug house, citizens see their tax dollars working, and
they get a feeling of satisfaction once the house is shut down and the accompanying noise and
violence is removed from their neighborhood.

Another measure of the program's success is the increase in the number of drug cases filed. 
Prior to the COMBAT tax in 1989, there were less than 200 drug cases filed.  In 1994, over
1,400 were filed.  The DART program accomplished many tasks from 1992 to 1994 including
sending out over 1,723 notice letters to property owners, completing 441 evictions,
implementing 924 fire and housing inspections, posting/vacating after inspection 683 properties,
boarding up 112 properties, filing 15 nuisances of which 5 were completed, and filing 10
forfeitures of which 8 were completed.

To date, DART has had contact with almost 2,000 properties throughout Jackson County.  This
action ranges from notice letters being sent to property owners informing them of the illegal
drug activity, to properties actually closed on code violations, to properties being declared
public nuisances by the Court and ordered vacated and boarded up for a period up to a year
and/or being ordered forfeited to the State of Missouri.

Prospects for Replication

The DART concept is easily replicated because most of the necessary components already exist
within communities.  Specifically, there is a prosecuting attorney, a narcotics unit or patrol
officers who confront narcotics-type activities, some form of fire codes and housing codes in
existence, and usually some block clubs or neighborhood associations with a vested interest in
identifying and addressing the issues presented by illegal drug activity.  DART's success is
inextricably interwoven into its continual development and flexibility in taking all legal steps
to respond to issues presented by drug activity as well as developing and communicating
proactive means of preventing the activity.

Contact Information

Willis L. Toney
Chief Drug Prosecutor
Jackson County Prosecutor's Office
415 East 12th Street
Eleventh Floor
Kansas City, MO  64106
(816) 881-3807
(816) 881-3843 faxNew Jersey


Police Community Partnership Program


Statement of the Problem

The City of East Orange, New Jersey is an urban center located in northern New Jersey.  The
1990 U.S. Census recorded a population of 73,552 people within East Orange's 3.9 square
miles.  This results in one of the most densely populated urban centers in the country with
18,388 people per square mile.  The unofficial population is approximately 100,000.

The target neighborhood has approximately 4,000 residents.  Less than 8% of them are senior
citizens, lower than average for the city.  About 30% of the population are under 18, about the
city-wide average.  East Orange is a low income city with a minority population over 90%. 
The target area has historically accounted for approximately 42% of all serious crimes that
occur in the city.

The Police Community Partnership Program was initiated on February 15, 1993.  The Police
Community Partnership Program uses a multiagency approach to address violent crime, drug
abuse, and deteriorating social conditions.  The Police Community Partnership Program relies
on the establishment of a healthy, positive relationship between the police and citizens.


Goals and Objectives

Some of the goals of the program are to:

          increase drug prevention programs in the schools by expanding D.A.R.E.;
          organize Community/Neighborhood Watch Programs;
          educate children, parents, and the public to be aware of and avoid potential
           crime situations and minimize their risk of being crime victims; and
          expand the number of neighborhoods in partnership with police programs.


Program Components

The Police Community Partnership Program is made up of 4 components:  Violent Offenders
Removal Program (VORP), Community Oriented Policing, Safe Haven, and Neighborhood
Revitalization.

VORP  This component is designed to remove violent and repeat offenders from the target
area.  It is a multiagency strategy which includes city, county, and State law enforcement
personnel working together to combat crime in the target area.  Meetings are held monthly to
discuss strategies to apprehend and remove violent offenders.  Individuals who continue to
degrade the quality of life in the target area are prosecuted with the assistance of the Essex
County Prosecutor's Office. 

Community Oriented Policing  The community policing unit consists of ten officers who form
the core of the project and are supported by the department as a whole.  They engage in a daily
vigorous patrol function.  The primary objective of the selection criteria is that police officers
should "get to know the community."  Their role is that of policeman, mediator, representative,
and friend to the target area residents.  Their responsibilities range from enforcing to advising,
and they look for all avenues to improve the quality of life in the community.  This partnership
is developed through trust and open lines of communication.

This component involves the mobilization of target area residents to assist law enforcement in
identifying problems and developing solutions.  Area residents become the eyes and ears of the
police.

Safe Haven  The Safe Haven was incorporated into the YMCA and Rowley Park, located in
the target area in East Orange.  The concept is to create a positive, healthy environment for
recreational, cultural, and educational programs.  Safe Haven, the recreational component of
the community policing partnership grant, has approximately 600 members between the ages
of five and eighteen.  Of these 600, 83 are members of the Safe Haven/East Orange YMCA
After School Program.

The After School Program is for youth between the ages of five and thirteen and runs from
2:00 p.m. to 6:00 p.m., Monday through Friday, at the East Orange YMCA gymnasium. 
Activities offered to the After School Program members include:  dance, swimming, tumbling,
arts and crafts, games, martial arts, science, after school homework assistance, games, snacks,
and trips.  Evening and weekend offerings are as follows:  Girl Scouts, the Archonette Club
(chapter of the Zeta Phi Beta Sorority), boxing, swimming, 4-H, basketball, open gym and
weight room, Creative Spirits Performing Arts Group, and video game room.

Periodic parent meetings and the involvement of parents in planning activities has been crucial
all the program's successes.  Mandatory parent orientations were set up at the beginning of the
program to orient parents regarding the program and to elicit their suggestions and desires
regarding program delivery.

Revitalization  The city intends to rehabilitate Rowley Park, which is located in the target area. 
The basketball courts have been resurfaced, and new playground equipment has been added. 
The city intends to make the park more of a focal point for community activities.  This will
be done by adding a picnic area, softball field, and security kiosk/concessions stand. 
Additional garbage receptacles and planters were placed throughout the target area.

Four two-family homes are presently being built at the corner of Park Avenue and North
Clinton Street.  A 16-unit multifamily property at 356 William Street is being rehabilitated and
is near completion.  Five multifamily homes with 163 units of affordable housing are to be
rehabilitated on North Walnut Street.  The rehabilitation of 139 North Arlington Avenue will
result in the creation of high quality, low-cost housing for families in the city.  There is also
a proposal for the development of a 16-unit multifamily home at North Walnut Street and Park
Avenue.


Results and Impact

Implementation Problems and Successes

Attempts made to begin a Pre-Teen/Teen After School Program at the East Orange High
School were unsuccessful due to low enrollment/interest.  One of the biggest problems in
implementing the program was knowing how each component should run and getting it to meet
that standard or higher.  Another problem was trying to get everyone involved with the
program to work together.

Successes and Accomplishments

One of the accomplishments in 1994 was the creation of a drug-free environment in Rowley
Park.  Another was the field house, now the home of a Mini-Station.  Through the
Mini-Station, safe corridors were established to and from school.  At the start of the school
year a meeting was held with the principal of the high school which borders the target area. 
Key issues discussed were truancy, loitering, and disorderly conduct in and around the school. 
One solution was to stagger dismissal times.  Officers assigned to the school work with Board
of Education Security to accomplish this.  A summer D.A.R.E. program was implemented for
children at Rowley Park.  D.A.R.E. officers continued to teach their program during the school
year at local schools.  Officers assisted neighborhood residents in applying for GED and job
training programs.

Daily interaction with building managers and superintendents has kept the lines of
communication open.  Security surveys were conducted.  Vacant apartments were utilized for
the surveillance of drug activity.  Signs were posted on buildings in the target area notifying
area residents that building owners are working with the police to rid the area of law violators. 
Crime tip placards were placed in stores and homes in the area. 

Calls for service are being monitored.  If a building is receiving complaints, a letter is sent to
the owner.  This letter requests that the owner respond to police headquarters.  Once the letter
is received by the owner, problems, strategies, and solutions are discussed.  A team effort is
utilized to find a solution to the problem.

Many innovative ideas have led to numerous arrests and the confiscation of drugs, money, and
vehicles.  A grocery store in the target area which played a major part in the drug trade has
been closed, and permits for a neighborhood laundromat are being processed.  Vacant lots were
blocked off by large tree stumps to prevent dumping.  Two vacant lots have been turned into
community gardens in the summer months, making the area safer and more attractive.

Officers in the Community Oriented Policing Unit made 247 adult arrests and 75 juvenile
arrests in 1994, compared to 450 adult arrests and 71 juvenile arrests in 1993.  A total of 247
adults were arrested as part of the VORP component of the program, 131 cases were reviewed,
and 51 cases were referred to the grand jury with dispositions in Superior Court. 

The highlights of the Safe Haven Program have been the successful completion of the 1994
Summer Camp, which registered 252 youth; Healthy Kids Day; Oktoberfest Flea Market;
Halloween Party; Thanksgiving Feast; and the end of the year Holiday Pageant.  The growth
of the Safe Haven component can be seen not only through the increased membership, but in
the addition of new programs, events, and parent participation.  It can also be seen between
the officers working with the program and the youth, who look for them and trust them and
their presence in the neighborhood. 

The process of revitalization will generate long-term benefits to the area.  Neighborhood
residents who are involved in job training will work as apprentices to the sub-contractors hired
to build the project.  Being able to address problems and find solutions has played an important
role in strengthening the position of the police in the neighborhood.

Prospects for Replication

For the program to be a success, it must have the commitment of the Chief of Police, and the
mayor must set the tone of the program.  Also, program organizers should tell others what the
goals of the program are to encourage success.

Being able to work with other agencies in the city, county, and State is of paramount
importance.  Some of the agencies that the Police Community Partnership Program works with
are:  Code Enforcement, Public Works Department, Health Department, Fire Department, Parks
Department, Tenant Resource, Board of Education, and Public Service Electric & Gas.  Area
residents must be empowered to combat neighborhood problems.  Being aware of all available
resources is important.

Contact Information

Lieutenant Ronald Borgo
Police Community Partnership Program
East Orange Police Department
61 Northmunn Avenue
East Orange, NJ  07019
(201) 266-5070
(201) 675-7311 faxOregon


Family Violence Intervention Steering Committee


Statement of the Problem

Domestic violence is a serious social problem in Multnomah County.  In 1994, 21 or one-third
of the homicides in Portland were committed in domestic violence situations, and law
enforcement officers were dispatched to over 17,000 domestic violence incidents.  In addition
to calling 911, victims of domestic violence call crisis lines and shelters at an even higher rate
for support, information and referral to services, and to find safety for themselves and their
children.  Crisis lines received over 29,000 calls with requests for shelter for nearly 28,000
women and children.  Unfortunately, only 1,200 women and children (less than 10%) could
be placed in domestic violence shelters.

By 1987, it had become clear to many people involved in intervention of domestic violence
situations that coordination of services, communication among agencies, and a clear vision of
a more effective system were needed to formulate the most effective response to domestic
violence.  In that year, the Family Violence Intervention Steering Committee was formed. 
Since that time, the Committee has developed comprehensive strategies to address the problem
of domestic violence and has pursued specific collaborative solutions.

In their 1991 report, From Harassment to Homicide, the Committee stated that:

      Although incidents of domestic violence in Multnomah County exceed those from gang
      violence or drug overdose, to date no commensurate public outrage, planning, or
      dedication of funds has resulted.  Instead misconceptions about domestic violence
      abound.  Abusive relationships are deemed to be private matters, with the victim at
      fault for "choosing" to stay -- even if she has children, no income, and no place to go. 
      Little attention has been given to this victim-blaming or to the lack of coordination that
      permeates this community's official response to domestic violence.  Shelters and
      services for victims are grossly underfunded.  Intervention with perpetrators is almost
      nonexistent.


Goals and Objectives

The Committee is a collaborative effort that has developed over the last eight years.  It
provides leadership and a forum for solving problems and developing partnerships, and a
shared vision among the agencies and bureaus that address domestic violence.  Each member
agency is independent of the Steering Committee and has its own goals and objectives.  The
process of collaboration and coordination involves a continuous assessment of the system in
place, an evaluation of its successes and failures, and steps to balance and improve the
response. 

The overriding goal of the Steering Committee and its member agencies is to effectively
prevent, intervene in, and reduce domestic violence in Multnomah County.  The mission of the
Family Violence Intervention Steering Committee is to provide an inter-agency forum for
developing, implementing, and assessing a coordinated response to domestic violence in the
City of Portland and Multnomah County.

The objectives of the Committee are to:

          share information about local responses to domestic violence in order to
           decrease its incidence in the community;
          plan, develop, implement, and monitor an integrated services model of effective
           intervention in domestic violence;
          focus public attention on the problem of domestic violence and develop
           community resources to deter it; and
          propose and support legislation, ordinances, and other public policy protocols to
           further the objectives of the Committee.


Program Components

Twenty-two public and private agencies are now members of the Steering Committee, and ten
to twenty other agencies regularly participate in meetings, planning processes, and activities
to prevent or intervene in domestic violence.  Steering Committee members include:  local
shelters and crisis lines, legal advocates for survivors, criminal and civil justice providers
(public defenders, Community Corrections, Courts, District Attorney), law enforcement units
(Portland Police Bureau, Sheriff's Office), health care providers, batterers' treatment providers,
Children's Services Division, and key funders (City, County, and United Way).  The Steering
Committee with its sub-committees and the formal and informal relationships that develop
among its members is the forum for coordination and development of policies, programs, and
problem solving.  The following activities of the Committee are in place.

Emergency Intervention:  Crisis lines, shelters, police/sheriff, and health care providers are
usually the first points of contact for people seeking help in domestic violence situations. 
There are five domestic violence shelters with crisis lines and two other crisis lines available
in the County.  This safety network for victims and their children provides support, information
and referral by phones, and safe shelter, transportation, advocacy, case management, material
support, and domestic violence education.  The committee also has motel voucher money
available on a limited basis to get victims out of dangerous situations on a short-term basis.

The police/sheriff departments respond to reports of family disturbance 911 calls.  Officers are
statutorily mandated to arrest the primary perpetrator when the officer has probable cause to
believe that an assault or other crime has occurred between family members or when the
officer believes that a restraining order has been violated.  In addition to actions taken by
officers at the scene, a domestic violence unit was formed in 1993.  The objectives of this unit
are to assist victims, reduce overall violence, and conduct follow-up investigations on domestic
misdemeanor cases, particularly if children are present, weapons, drugs, or alcohol were used,
or if the incident is a repeat offense.  The committee is currently studying how felony cases
are handled by the law enforcement system.

Criminal Remedies:  Criminal remedies, intended to prevent future violence, give the
perpetrator the message that domestic violence is not acceptable to the community.  The
objectives of the Domestic Violence Unit District Attorney are to stop the cycle of domestic
violence, to seek appropriate sanctions against defendants, and to assist the victims.  The unit
is committed to prosecuting domestic violence crimes aggressively, in some cases without the
victim's participation.

This Unit, the Courts, and Community Corrections all participate in a deferred sentencing
program for batterers, including treatment, intensive supervision, and jail time if the
perpetrators fail to complete the treatment or re-offend.  The objective of this program is to
reduce re-offenses in 70% of those completing the program.  Defendants who qualify for this
program are misdemeanants who have no prior convictions for crimes against a person and
have not previously participated in a deferred sentencing program.

Civil Remedies:  Civil remedies consist of Family Abuse Prevention Act Restraining Orders
and divorce and custody orders.  The objective of all of these civil remedies is the separation
of the victim from the perpetrator.  Two agencies, Portland Women's Crisis Line and the
Oregon Coalition Against Domestic and Sexual Violence, provide advocacy and assistance at
the courthouse for survivors who wish to obtain a restraining order.  Additionally, the
Volunteer Lawyers Project and Lewis and Clark Legal Clinic provide lawyers or third-year law
students to assist petitioners in obtaining a contested order.  Multnomah County Legal Aid's
Family Law Center provides free attorneys to assist survivors in divorce, custody, visitation,
and child support hearings.

The County Court Family Law Department has five judges who handle cases involving
restraining orders and the deferred sentencing program.  These judges grant and vacate orders,
hold hearings on contested cases, and determine violations of orders.  They also hold 30-day
and 6-month hearings on the status of deferred sentencing program participants.

Results and Impact

Performance Measures

In From Harassment to Homicide:  UPDATE, 1994, the Committee made 38 recommendations
for more effective intervention in domestic violence in the following categories.

General Recommendations:  standardize date collection; design and evaluate a model for a
multidisciplinary response team; institutionalize training; provide stable funding to staff;
promote a community intolerance for domestic violence; examine the relationship between
domestic violence and substance abuse; assure an adequate response to domestic violence in
gay and lesbian relationships; and encourage information sharing between child abuse
prevention programs and committee members.

Services for Victims:  seek stable funding from local government, large corporations, and
individual donors for existing shelters; increase shelter capacity and transitional housing;
support efforts to recruit attorneys and law students to assist in civil remedies; develop stable
funding for court advocates; and study the occurrence of crimes committed by domestic
violence victims at the behest of their abusers and identify appropriate recourse.

Intervention with Perpetrators:  support the development of statewide standards and protocols
for jailing, bail, release, sentencing, treatment, and probation for offenders; and develop a
closer relationship between the County Sheriff's Office and the Committee.

Law Enforcement:  assist in comprehensive training for police officers and other law
enforcement professionals, with a focus on officers making cases without participation of the
victim; create a resource directory for use by all police officers; and monitor community
policing.

Civil Justice System:  improve the justice system's response; provide judges, attorneys, and
court personnel with up-to-date information in the field; provide ongoing training for judges,
attorneys, and court personnel; and locate adequate, private space for restraining order
applicants and provide child care for their children.

Criminal Justice System:  train all criminal court attorneys and judges; develop batterer
intervention programs and treatment and misdemeanor sentencing guidelines; and support
communication between the District Attorney and Corrections.

Corrections:  increase and stabilize funding for deferred sentencing intensive supervision; train
all corrections staff; develop standardized release criteria and sanctions; and implement vigilant
supervision of all domestic violence offenders.
Implementation Problems and Successes

The Committee was originally convened and staffed in 1987 as part of a federally funded pilot
program through the National Council of Juvenile and Family Court Judges to study the
response of the court system to domestic violence.  After the Committee's results were
published in Family Violence:  Improving Court Practice in 1989, it continued to meet and
broadened its focus.  One of its major successes since then has been the ongoing collaboration
and communication among agencies which address domestic violence.  In the last three years,
there has been a significant increase in the number and kinds of agencies represented at the
monthly meetings.  Planning by individual agencies (especially public/governmental) is now
done on a collaborative basis with the participation of victim advocates and other
representatives from appropriate agencies.

Barriers to collaboration and communication have been many, including disinterest by agencies
or individuals in the agencies, historic difficulties or animosity between agencies, differing
philosophies or modes of operation among agencies, lack of consistent funding for staffing, and
maintaining interest and involvement over eight years.

The problem of differing philosophies has been rectified through law suits against government
agencies to contest old philosophies and the build-up of personal relationships among personnel
from many agencies.  The funding issue can be resolved by obtaining hard funding from
private corporations and the community in addition to or in lieu of government grants. 
Isolation among organizations such as the District Attorney's Office and law enforcement
magnified the importance of listening, a function provided by the Steering Committee.

Successes and Accomplishments

The Committee and its member agencies have had many successes in the 4 years since From
Harassment to Homicide was published, including:

          In 1993 and 1994, the Committee and the City of Portland received grants
           totalling $384,000 from the Edward Byrne Memorial Formula Grant Program
           to assist in the development of a coordinated response.  Key components of
           these grants are:  extensive training for police in the domestic violence unit; a
           bilingual, bicultural Outreach Advocate to assist the police domestic violence
           unit with the Hispanic community; one Parole/Probation Officer to handle
           intensive probation supervision of perpetrators; shelter for 250 women and their
           children; intensive services for victims who are involved with drugs, alcohol,
           and gangs; advocacy and referrals for victims to obtain restraining orders; and
           legal assistance for low-income victims.

          Almost 3,500 restraining orders were issued last year.  From July 1994 to
           December 1994, this number increased by 19%.  This is due in part to increased
                      advocacy and assistance received by women at the court house and to the
           activities of the police domestic violence unit.

          In 1993, the Portland Police founded a domestic violence unit.  Last year, this
           unit reviewed over 5,000 reports of domestic violence made by "street officers." 
           They followed-up on 621 of these reports and gathered additional evidence for
           prosecution.  They also assisted victims in obtaining restraining orders and other
           resources and enforced these orders.  In some cases, they were able to increase
           the prosecution from a misdemeanor to a felony.  A pilot study by a local
           research institute has shown a significant increase in victim-initiated
           prosecutions and applications for restraining orders when this unit has
           intervened.

          In the last three years, the District Attorney's Domestic Violence Unit has
           almost doubled the number of domestic violence cases prosecuted annually. 
           They have a "no drop" policy in felony cases and in certain misdemeanor cases,
           even if the victim can not participate in the trial.  Last year, this unit reviewed
           over 3,000 cases and prosecuted approximately one-third of these cases.

          The Committee has been instrumental in obtaining $324,000 annually from City
           funds for shelter services and $100,000 annually from County general funds for
           services to children of domestic violence victims.

          Community Corrections has developed a domestic violence unit which provides
           intensive supervision to offenders in the deferred sentencing program.  This unit
           has provided supervision to 380 offenders in the last year and a half. 
           Approximately half of those who have left the program have successfully
           completed it.  They have begun to plan the development of an enlarged domestic
           violence unit which would provide supervision for all domestic violence
           offenders.

Additional successes have included the creation of a standardized policy for release from jail;
funding for full-time staff for the Committee; increased legal advocacy for victims in civil
actions; endorsement and participation in community fundraising and public awareness
campaigns; publication of From Harassment to Homicide:  UPDATE; increasing evaluation of
the coordinated response through a local research institute; collaboration with and assistance
in founding a statewide council on domestic violence; improved data collection, compilation,
and release of annual statistics about domestic violence; formation of a committee to study
response to serious and repeat offenders; and testimony at hearings and to civic groups.

Prospects for Replication

Because the Committee is a voluntary association, its success has depended on leadership and
initiative by key individuals and on community concern about domestic violence.  The
Committee has no enforcement power, but has been able to rely on the use of information
sharing, influence and mutual support, and peer pressure to obtain its accomplishments.

Replication of a collaborative approach such as this has several key components.  The
participation of victim advocates and/or formerly battered women on the Committee is essential
for the development of an effective response.  Chiquita Rollins, Domestic Violence Coordinator
for the project has said that "one of the most important things that you can do is have victim
advocates or victims themselves sit at the table with you.  It's so important for law
enforcement people, for the shelters, for the prosecutors, (for) corrections, for people at large
to hear victims' perspectives of this -- what works and what doesn't work."

Support by the Courts or by individual judges is critical in bringing additional players to the
table and in carrying out the recommendations of the Committee.  Fluidity of structure has
allowed the Committee to respond to various issues quickly when they arise by forming ad-hoc
sub-committees and by involving new partners or agencies easily.  For this to be successful,
everyone must come to the table as equals.


Contact Information

Chiquita Rollins
Domestic Violence Coordinator
421 SW Fifth, Second Floor
Portland, OR 97204
(503) 248-3691 ext. 7806
(503) 248-3379 faxPennsylvania


Domestic Abuse Response Team (D.A.R.T.)


Statement of the Problem
      
Until recently, most prosecutors' offices lacked specialized divisions for family violence. 
Cases were typically assigned to a generic pool of lawyers, often with little expertise or interest
in the complex dynamics and legal issues presented by child abuse, domestic violence, elder
abuse, and adult sexual assault.  In the last few years the need for specialization has been
acknowledged.  Many prosecution offices nationwide now have discrete units, each dedicated
to a separate specialty.  Each unit typically has its own staff, supervisors, protocols, and
training.

While specialization has undoubtedly increased conviction rates and enhanced victim
sensitivity, the separation of family violence into categories of child abuse, domestic violence,
elder abuse, and adult sexual assault encourages tunnel vision.  To focus on the criminal act
while ignoring the familial environment in which it occurs is often to miss the forest for the
trees.  Inadvertently, this kind of prosecutorial specialization may leave at risk those who are
most vulnerable to harm.  This problem can be illustrated in the scenario where the father
intends to assault the mother but inadvertently injures their child in his path.  If the child
suffers injury, this case is characterized as child abuse and assigned to the Child Abuse Unit. 
The father's intended assault on the mother goes unaddressed, and a long history of escalating
violence is left unexplored.  If at the child abuse trial the mother refuses to testify against the
father, she is likely to be condemned as unprotective of her child and possibly subjected to
criminal penalties for her refusal to testify.  In addition, the mother's failure to cooperate with
the prosecution may trigger the involvement of the child welfare system.  If the caseworker has
no understanding of the dynamics of domestic violence and views child protection as attending
exclusively to the child while ignoring the mother's safety concerns, both mother and child
may be more harmed than helped by this well-meaning but uninformed response.  The
prosecution may win the case but leave the victims, both identified and hidden, in a more
vulnerable situation than before criminal justice involvement.  Winning in cases of family
violence must be redefined.  The goal must be the protection of both adults and children in the
household.

In response to this problem, the Philadelphia District Attorney's Office merged the Child
Abuse Unit with the Domestic Violence Unit to become the Family Violence Unit in 1992. 
Unit members became aware of how frequently adult sexual assault occurs between intimate
partners, sexual violence often being a manifestation of domestic abuse.  Many sexual assault
survivors need the services of both rape crisis counselors and domestic violence advocates. 
Prosecutors who handle sexual assault cases must be educated that a sex crime may be the tip
of the iceberg in a sea of long-standing violence.  With the observation that when more support
services are offered and staff is more educated, more women actively cooperate with the
prosecution, the Unit decided to take cases of adult sexual assault.


Goals and Objectives

The goal of the program is to change the vision of the criminal justice system with regard to
domestic violence from an adversarial system to a medical model.


Program Components

The Family Violence and Sexual Assault Unit staff includes 15 prosecutors and three victim
advocates (one of whom is Spanish bilingual and bicultural ) who assist with information and
support services before, during and after a criminal case.  Philadelphia Police Officers do
follow-up investigations and safeguard victims from possible intimidation or retaliation by swift
arrest if victims are threatened or harassed because of their participation in prosecution.  The
Unit encourages multidisciplinary coordination and cooperation and works closely with
domestic violence, rape crisis, and child advocates.  College and law students also volunteer
their efforts.  In addition, established mental health professionals including a family therapist
and a forensic child psychiatrist volunteer their time for case consultation when requested.

Domestic Abuse Response Team (D.A.R.T.)  It is within the context of this comprehensive
approach to prosecuting family violence and sexual assault that the Philadelphia District
Attorney's Office adopted a strategy of prevention.  Utilizing Federal funding that was
designated for crime prevention services, the Philadelphia District Attorney's Office created
the Domestic Abuse Response Team (D.A.R.T.), an approach to prosecuting domestic violence
which focuses its attention on those cases traditionally awarded the least prosecutorial attention: 
misdemeanors.  The vision was that a centralized, coordinated, multidisciplinary response to
domestic violence at its earliest criminal manifestation would preempt its escalation into a more
serious crime. 

The D.A.R.T. program targets misdemeanor cases where there are risk factors associated with
escalating violence.  These factors include a defendant's history of assaultive behavior,
substance abuse, threats of homicide or suicide, threats with a gun or knife, obsessive stalking
behavior, violence where there are young children in the home, and where there are ongoing
child custody problems between the defendant and the complainant.

According to Mimi Rose, Chief of the Family Violence and Sexual Assault Unit,
"Multidisciplinary work is extremely important.  The prosecutor in our system is the hammer,
but if all you have is a hammer, then every problem looks like a nail, and it's not, and you
must work with other people."  To that end, the D.A.R.T. team consists of two prosecutors who
became part of the team voluntarily, a victim advocate, and a domestic violence counselor from
a counseling agency who is housed within the prosecutor's office.

D.A.R.T. members select domestic violence cases meeting program criteria.  The complainants
are contacted by the victim advocate within 24 hours.  The victim advocate provides
information about the court process, and the D.A.R.T. assists the complainant with safety
concerns and counseling referrals for herself and the children when requested.  The team's
theory is "If you keep an open door, people will come when they're ready to come."  The
D.A.R.T. prosecutor reviews the case for any additional evidence collection or investigation
that may be necessary such as 911 radio tapes, photographs, additional witnesses, or hospital
records.

At trial the complainant is accompanied by the victim advocate.  If the case is continued, the
same D.A.R.T. prosecutor remains with the case at each listing until disposition.  Complainants
are invited to attend support groups and the new witness workshop program which provides
information about a trial in a courtroom setting.  Children in these situations may receive a
separate advocate or attorney to ensure that their needs are being met.  At the conclusion of
a case, the D.A.R.T. team has follow-up contact with the complainant by phone or mail to see
if there are any continuing problems with which it can assist.  During weekly case conferences,
D.A.R.T. members meet to discuss both case-specific and systemic issues which need
collaborative intervention.


Results and Impact

Performance Measures

Some of the measures of success for this program are the recidivism rate of domestic violence
offenders, victim satisfaction with the program, and life improvement of the victim.

Implementation Problems and Successes

At the beginning of this program, there was not enough leadership.  The criminal justice
system was apathetic to changing its role from a law enforcement to a more social work
oriented focus.  People with a vision need to step up from the start to energize the other
players, including prosecutors and law enforcement officers, and begin to reprioritize cases and
redefine winning.

The D.A.R.T. program experienced an initial reluctance on the part of the police to cooperate
with the new outlook towards domestic violence.  Lawsuits as well as directives from the Chief
of Police have helped to change their attitudes.  A big selling point for the program has been
the inherent involvement of children.  Once the officers understood the impact on children,
they were more willing to help.

Successes and Accomplishments

The program has served 400 people since its inception.  It has created a ripple effect in that
the police departments want domestic violence units in all of the districts in the State based on
the Philadelphia model.  The attitude of police officers toward victims has changed in
Philadelphia.  Police are listening to victims and working with their requests.

Prospects for Replication

This program can be easily replicated because it only needs one individual to be a family
violence specialist to complete the unit which consists of prosecutors and police officers who
are already in place.  This specialist must work with the prosecutor but not for the prosecutor
to maintain victim confidentiality and trust.

All staff on the project must redefine winning from making convictions to making people safer. 
Cross training by outside sources of criminal justice professionals is important to the success
of this program in order to redefine the roles of prosecutors and law enforcement professionals. 
Choosing police officers who want to do this type of work and training them appropriately is
also very important to setting up a D.A.R.T. program.

Program staff must work with the victim to obtain what she wants out of the situation.  For
example, she may want the abuser to attend Alcoholics Anonymous meetings instead of going
to jail.  The trust and confidence of the victim are extremely important to the success of the
case, and criminal justice professionals must emphasize that they are there to help her in any
way that they are able.  In addition, the problems of mothers and children cannot be separated
into different issues; protecting the mother is protecting the child.  For success, program staff
must speak to the community about domestic violence to make the issue more visible.  The
Philadelphia Police Department modeled the D.A.R.T. team in the form of a domestic violence
unit in all of Philadelphia's districts.


Contact Information

Mimi Rose
Chief, Family Violence and Sexual Assault Unit
Philadelphia District Attorney's Office
1421 Arch Street
Philadelphia, PA  19102
(215) 686-8014
(215) 686-8049 faxPuerto Rico


Minors Diversion Program


Statement of the Problem

The Puerto Rico Juvenile Justice System was challenged by the number of minors getting
involved in antisocial and illegal behavior.  The numbers were growing fast, especially because
of the serious offenders.  There was also a large number of minors entering the system for the
first time charged with Class I and II offenses.  The Juvenile Justice System was aware of the
relation between drug abuse and juvenile delinquency.

The communities demanded more action.  In 1986 a new law for minors, Law 88, was enacted. 
In this new law, diversion was statutorily introduced to attend to the preventive and
rehabilitative aspects of criminal justice.  However, the community was not very enthusiastic
since there were few diversion programs sponsored by the Law Enforcement Assistance
Administration, and these programs were not very successful.

The Juvenile Administration facilities were and still are crowded.  They lacked personnel,
rehabilitation services, and other necessities.  The social and economic costs were extremely
high for the government.  The effectiveness of the agencies' services to the minors was
hampered by low morale, lack of responsibility, lack of funding, and lack of community
support and awareness.  The Puerto Rico Justice Department decided to establish a well
structured and organized Diversion Program.

The Diversion Program was implemented in Puerto Rico to comply with Law 88, creating the
Special Prosecutors for Minors and other support personnel.  This Law guarantees minors of
both sexes, 17 years of age and under, who have been charged with committing a Class I
offense or a first Class II offense, that they can be granted a diversion into a public or private
rehabilitation program in the community through a formal contract.  Through this program,
certain minors can be prevented from getting into the formal prosecution system, and those
who have already entered do not become recidivists.


Goals and Objectives

The first goal of the Diversion Program is to divert minors from the formal adjudication
process in the courts and to provide follow-up to minors to prevent and control juvenile
delinquency in Puerto Rico.

The objectives to reach this goal are:

          to establish the program island-wide in each of the thirteen (13) Judicial
           Districts;

          to disseminate information about the program to all law enforcement agencies
           and other related agencies to explain how diversion can be used to prevent
           juvenile delinquency;

          to divert minors from the judicial process into public and private rehabilitation
           programs; and

          to establish an evaluation system for individuals being referred, evaluated,
           recommended, placed, and released due to compliance or non-compliance with
           the program.

The second goal is to help minors fulfill their diversion contracts' conditions and to develop
social and emotional skills to prevent recidivism.  The objectives designed for reaching this
goal are:

          to follow-up diverted minors; 

          to design a program to help parents or legal guardians get acquainted with their
           responsibilities and roles with regard to child and adolescent care;

          to enroll diverted minors and their parents or legal guardians in a fourteen-hour
           comprehensive workshop discussing the areas of resolving problems, becoming
           a functioning family, experiencing being a victim, clarifying family roles, and
           other topics;

          to promote "stay out" and "say no to drugs;" and

          to furnish progress reports and attend review hearings in court.


Program Components

Services

The Diversion Program provides multiple services for minors granted diversion into a public
or private rehabilitation program in the community.  After probable cause is determined by a
judge, the minor's lawyer, parent, or the juvenile prosecutor requests that the minor be
considered for diversion.  The juvenile prosecutor then makes a referral to the program.

The referred candidate is evaluated by the social worker in coordination with a special
investigator.  They gather information from court records and other human service
professionals who have provided him services.  An appointment for an interview with the
minor and his parents or legal guardian is required.  The evaluation process also includes a
community visit to discover the minor's relations with school personnel, community members,
neighbors, peers, and others.  At the same time, the social worker looks for community
resources that are available as possible service providers.  All the information about the minor
is gathered into a social evaluation report and delivered to the juvenile prosecutor with the
social worker's recommendation.  If it is favorable and the juvenile prosecutor agrees, the
social worker schedules an appointment with the minor and his/her parent or legal guardian,
the defense attorney, the receptor agency representative, and the juvenile prosecutor to discuss
the case and the diversion contract.  If the conditions are accepted, the diversion contract is
signed and submitted by a motion to the judge.  The contract is very specific about the minor's
and parents' or guardian's responsibilities as well as the agency that will provide the
rehabilitation services. 

If the judge approves diversion for the minor, he imposes the diversion terms and sets the date
for the next hearing review.  The social worker then prepares and submits an official referral
to the receptor agency.  Once the minor is placed, the social worker or the agent follow-up his
conduct twice a month.  If there is a problem, new planning or modification of the contract
terms may take place.  The receptor agency submits progress reports quarterly or upon request. 
The agency representative also attends the review hearing and gives recommendations to keep
the minor diverted or to end the contract.  In the meantime, lab tests on a regular basis
determine if any illegal substances have been used.  If the test is positive for drug use, a case
discussion takes place with the same group that participated in setting up the diversion contract,
and the rehabilitation plan is modified.  If the youth continues to use drugs, it is recommended
to the juvenile prosecutor that diversion cease, and the minor returns to the formal adjudicative
process.  If he/she finishes the diversion contract conditions, all charges are dismissed.  If the
youth's parents or guardian fail to support the child in the program (i.e., fail to take them to
scheduled appointments), they can be brought up on neglect or abuse charges.  The diversion
program can be extended if necessary to help the child.

The Program also provides an intensive and comprehensive fourteen-hour seminar divided into
six or seven workshops for the minors and their parents or legal guardian.  A curriculum as
well as a Rules and Procedures Manual were designed and reviewed to implement the
seminars.  At the completion of the workshops, a graduation ceremony takes place with special
guests invited such as distinguished athletes, singers, musicians, government officials, and the
Attorney General.

A follow-up program was designed to operate twice a month focusing on diverted minors
remaining active at the end of the fiscal year.  The most recent component is the Summer
Camp for the diverted minors, their parents or legal guardians, and siblings.

Staff

The Minors and Family Affairs Office Director is responsible for the overall functioning of the
program.  The juvenile prosecutors in charge are responsible for the overall functioning of the
program at their offices (13 District Offices).  The Program Director - Social Worker Specialist
coordinates the programmatic and administrative activities of the Program, providing technical
assistance and specialized training to the staff, evaluation, and monitoring of the program.  The
program team is composed of key personnel including the juvenile prosecutors, social workers,
special agents, and secretaries at each district office.  The Program Director trains the program
personnel.  Sometimes the budget allows for training on the mainland.


Results and Impact

Performance Measures

The performance of the Diversion Program is measured in several ways.  First, it is measured
by the monthly statistic report which shows the number of minors referred, evaluated,
recommended, placed, and released due to compliance or non-compliance with conditions.  The
Program Director gathers all of the statistical reports and tallies them and conducts
administrative and programmatic monitoring, which identifies problems and needs.  In addition,
a lengthy study was carried out in order to determine the effectiveness of the program. 
Another way the program is measured is through auditing and monitoring by Federal Funds
Division personnel.

Implementation Problems and Successes

The Diversion Program experienced some difficulties in the implementation process.  As stated
before, in Puerto Rico there were approximately 18 diversion programs which failed to
accomplish their goals due to lack of structure, little or no follow-up, and funding problems. 
The community was demanding more action, and the law enforcement agencies related to
Juvenile Justice were suffering from lack of enthusiasm with regard to diversion.  Program
administrators had to solicit everyone's support and convince them to give the Diversion
Program an opportunity to work.  Funding was received from a federal grant.

Successes and Accomplishments

The Diversion Program has been very successful.  The table shows the program's performance
from fiscal year 1989-90 through fiscal year 1993-94.

                                        TABLE I
                   DISTRIBUTION OF MINORS DIVERTED INTO THE PROGRAM
                        - BOTH SUCCESSFUL AND NOT SUCCESSFUL - 
                            FISCAL YEARS 1989-90 TO 1993-94

   Year    Balance
             from
           Previous
             Year       Youth
                      Diverted to
                          the
                        Program    Youth
                                 Placed into
                                  Agencies      Youth
                                             Finishing the
                                                Program
                                            (Successful or
                                                 Not)         Youth
                                                            Completing
                                                           the Contract     Youth
                                                                              Not
                                                                          Completing
                                                                              the
                                                                           Contracts1989-900159159565601990-9175446521204156481991-92306460766425347781992-93337389726414357571993-9431542373838131566Grand
Total         
             1,033
                         1,877
                                    2,910
                                                 1,780
                                                               1,231
                                                                              249
The evaluation report submitted by the Division of Federal Funds stated that "during this
period of operation, the program has attained a 100% performance rate as to the goals and
objectives established."  The Diversion Program has gained great support from the Attorney
General's Office, lawyers, judges, community groups, and private organizations such as
religious groups.  The program's greatest achievement was to be recognized by the State
government as a very important and needed program, adopting it as a permanent State program
after Federal funding ended in 1994.

The program has also reported the following accomplishments:

          in Fiscal year 1989-90, it was established in 8 out of 12 district offices; it has
           now expanded to all 12 offices;
          other government agencies have been opening service programs for diverted
           minors, such as the Voluntary Corps of Puerto Rico;
          the awareness program has had an overwhelming impact among community
           members as evidenced by their positive responses to surveys and the high
           referral rate of the program from parents who have been involved;
          to enhance its communication, the program produces printed brochures, radio
           and television appearances, conferences conducted by professionals, town
           meetings, and workshops;
          the program provides a 14-hour workshop for juvenile divertees and their
           parents or legal guardians;
          the substance abuse tests for juveniles attending the program are conducted by
           the Forensic Sciences Lab Institute;
          staffing has grown from 18 to 32 employees;
          in 1994 a Summer Camp Program Pilot Project which includes parental
           participation was established which will be expanded island wide for 1995; and
          the program's clients are 97% drug free.

Prospects for Replication

To replicate the program, a Minors Law which includes a diversion mechanism is needed. 
Community support and cooperation from the Juvenile Justice System and Law Enforcement
Agencies are also needed.  Judges involved with the program must be told to be tough with
the receptor agencies to make sure that the youth in the program are receiving adequate
services.

Since the program depends upon the availability of services in private and government
agencies, institutions, or programs, an intensive interagency relationship is needed.  The
program has strong potential for replication because it meets common needs.


Contact Information

Blanca Collazo de Mollfulleda
Director
Minors and Family Affairs Office
Puerto Rico Justice Department
P.O. Box 192
San Juan, PR 00902
(809) 729-2051
(809) 729-2031

Marcelino Oyola Cintrn
Director of Diversion Program
Minor and Family Affairs Office
Puerto Rico Justice Department
P.O. Box 192
San Juan, PR 00902
(809) 729-2031
(809) 729-2076
(809) 729-2593 faxSouth Carolina


Fairfield County Sheriff's Success Academy


Statement of the Problem

Fairfield County is a poor, rural county (population 22,300) situated off the interstate corridor
of I-77 between Columbia, SC and Charlotte, NC.  With less than 50 local and county law
enforcement agents to cover the 696 square miles of this vast county, Fairfield is in a
vulnerable position for drug-related crimes, domestic violence, and homicides.  With high
unemployment and few positive alternative activities for youth, violent youth offenders are
emerging at a dramatic rate.

Like many rural areas, this county has no community centers or other sites to serve as a
community focal point.  Families living below the poverty level and headed by females total
47% of the population, and the unemployment rate, the third highest in South Carolina, has
risen to a dismal 9.5%.

According to the Sheriff's Office, an increased number of drug dealers and other criminal
elements have moved to Fairfield County in the past several years to prey on the county's
youth.  Since 33% of the total population of the county is under 18 and law enforcement agents
are stretched to cover the entire county, the need for pro-active delinquency prevention
programs has become a top priority.

Serving the 11th largest school district in South Carolina with an enrollment of 4,250 students,
the Sheriff's Office experiences first-hand the results of delinquency, adolescent gangs, and
youth violence.  Also, this district has the 11th highest dropout rate in South Carolina for
grades 9 through 12.

Realizing that middle school is such a pivotal time for youth and that research shows that many
students drop out of school during the summer between 8th and 9th grades, the Sheriff's Office
remains committed to targeting 8th graders, especially those from environments where violence
or incarceration has been "the norm" or those with indications of other high risk factors.  As
demonstrated by the Sheriff's Success Academy (SSA), the Sheriff's Office is committed to
pro-active, collaborative delinquency prevention programs as a deterrent to youth violence and
crime.

Goals and Objectives

The primary goals of the Sheriff's Success Academy are:  (1) to provide a unique environment
in which adolescents can learn and practice skills and attitudes that will help to prevent violent
and delinquent behavior and safely participate in positive risk-taking activities; and (2) to
provide opportunities for positive interaction with law enforcement officers and other adult role
models who care about their futures.

The following objectives were established to meet the overall goals:

          to engage students in a process where they will have increased involvement,
           interaction, and ownership in the sessions while learning to trust and respect
           each other, thereby helping them to grow into more responsible, contributing
           individuals;
          to engage parents/significant others in a process that strengthens the family unit
           and emphasizes social capital and giving back to the community;
          to expose students to the real world of law enforcement by working closely with
           individual officers as mentors and role models;
          to utilize the ideas, resources, and volunteers from the total community through
           collaboration and mutual respect;
          to expose students to a wide array of career options available to them, so they
           have a greater sense of hope and motivation and can make good choices about
           their futures; and
          to promote public awareness of the SSA and the old African proverb, "It takes
           a whole village to raise a child."


Program Components

Currently, the Sheriff's Success Academy is in its second year, although the new SSA class
has only been meeting since December 1994.  All of the major components are up and running,
but the program is constantly being readjusted and improved.

YOUTH  The criteria for being accepted into the SSA are that the student is not in trouble
with the law; shows symptoms of behavior problems in school; has attendance problems at
school; has been held back a grade for one or more years; and has no support at home. 
Selections for the program are made through the help of teachers and guidance counselors. 
Twenty-five eighth grade students from three schools (one private and two public) voluntarily
participate in the SSA.  These youth represent a diverse group and have quickly begun to bond. 
Their willingness to take positive risks is rapidly increasing.  Ten of last year's SSA graduates
have been selected and trained as Team Leaders and are involved as positive role models and
mentors, while continuing to develop their own skills and attitudes.

In addition to building a safe, caring community, the SSA incorporates periodic student
incentives (e.g., t-shirts, rewards, and a formal graduation ceremony) that enhance pride, build
a sense of "family," and acknowledge to the community that SSA members are junior
ambassadors to the Sheriff's Office.  Transportation and all expenses are covered for all SSA
participants.  The goal is to maintain a consistent core of twenty-five eighth graders and ten
Team Leaders.

PROGRAMS/SESSIONS  The SSA sessions (comprised of 12 to 15 exciting, meaningful
Saturday, weekend, and after-school events) provide opportunities for the SSA students to be
exposed to experiences that motivate and broaden their horizons and enhance their
self-concepts.  These sessions focus on:  Trust, Respect, Communications, Team-Building,
Conflict Resolution, Cultural Sensitivity, Law-Related Education, Career Awareness, and The
Arts.  As students proceed through the program, they begin to integrate these new skills,
behaviors, and attitudes that act as buffers against the risk factors and negative influences in
their lives.  

PARENTS  The SSA established an active Parent Support Network that meets on a regular
basis and offers guidance and mutual nurturing to the parents and significant others of the SSA
members.  A Parent Speak-Out is held for the new parents.  Here they identify youth issues
of concern to them and go through an interactive process to determine appropriate solutions
to these problems.

Also, each year at least one Parent/Youth/Community Project is required that involves family
members working together with volunteers to give back to the community.  Last year the
parents and SSA members worked diligently with the deputies and other community groups
to set up and sponsor the annual Sheriff's Family Day.  This is an event that draws at least
1,500 families from across the county to become acquainted with law enforcement officers and
services.

Parents have offered their services to transport students and/or parents when necessary and to
serve as "wait staff" at the formal dinners and other events.  A group of parents from the first
SSA class is continuing to chaperon at sessions and to encourage some of the new parents, as
well.  The goal is to engage 75% of the parents in SSA activities and 95% in graduation.

LAW ENFORCEMENT  The SSA recruits and trains deputies and other law enforcement
officers as mentors and chaperons.  Having these individuals play an active role is a strong
deterrent to youth violence and crime.  Some of the officers prefer to be assigned to an SSA
student as a mentor who meets with the youth on a regular basis.  The students thoroughly
enjoy having the Sheriff and officers participate in the activities.  Whomever attends a session
becomes part of the extended family, which solves problems, makes group decisions, shares,
and supports each other.  The goal is to actively involve 25 officers.

Another aspect of the SSA involves tours and discussions with officers, personnel, and inmates
at the county detention center, the State Department of Juvenile Justice, and other law
enforcement agencies.  Such visits create a "reality check" into the criminal justice system as
a legal process and as an environment for a multitude of careers.

COMMUNITY COLLABORATION  The program is built upon an active Citizens Advisory
Committee which meets on a monthly basis.  This group of twenty-five represents a
cross-section of the community.  They provide input and resources for the SSA.  With the help
of these individuals, physical facilities for the monthly sessions are reserved, and after-school
tours of their plants are scheduled.  Many of the CAC members also serve as chaperons for
events.

A Mentoring Sub-Committee oversees the process of assigning caring, positive adult role
models to SSA students as a complementary support system to the home environment. 
Realizing that effective mentoring can utilize a variety of procedures, the volunteers on the
subcommittee offer interested officers and adults two options:  to be matched with a specific
SSA member with whom they will meet on a regular basis or to attend a series of four or more
sessions and interact positively with all of the SSA members.  In either situation, the students
are afforded the opportunity to get to know officers and other adults as positive influences in
their lives.

Fliers have been mailed county-wide to 122 churches of all races and creeds seeking 35
interested individuals as new mentors.  Follow-up phone calls will be made.  Several clergy
have offered their facilities and services to the program.

In addition, some of the local businesses and industries, including Mack Trucks, Inc. and Hon
Corporation, have centered employee projects on the SSA, including mentoring and sponsoring
trips to the Columbia Bombers baseball games.  Some employees have even collected money
to make donations.  The goal is to actively engage more than 100 community volunteers with
the SSA.

CAREER AWARENESS  Since the majority of the students have limited access to travel
outside of the county, it is necessary to take advantage of every opportunity afforded the SSA
to help the youth gain a realistic picture of potential jobs available locally and statewide. 
Planning sessions at different facilities around the county and touring various types of work
sites demonstrates to the youth a world of possibilities.

This summer the SSA will be utilizing the local business community in a Shadowing Program
to expand SSA students' career awareness.  The Fairfield County Rotary Club has agreed to
participate in this effective approach to exposing students to careers in which they have
interests or talents.  Members of the Fairfield Chamber of Commerce, individual business
owners, and county agencies will also be invited to host a student for a Shadowing experience. 
The goal is to schedule a minimum of 35 visits for interested students.

MEDIA AND PUBLIC AWARENESS  The SSA ensures that local and State media provides
meaningful and accurate coverage of the program and the commitment by the Sheriff's Office
and the community.  Whenever possible the SSA publicly recognizes SSA student and
volunteer accomplishments.  The goal is to schedule media coverage or public presentations
once a month.


Results and Impact

Performance Measures

One measure of the program's success is the number of students who receive an improvement
award or academic award at school by the end of the academic year.

Implementation Problems and Successes

The most difficult part of establishing the Sheriff's Success Academy was that the first year
there was only one staff person.  Having adequate personnel is essential to the project's ability
to positively impact every participant.  Now that the program has an additional part-time staff
member, it has made a difference in the ability to have regular contacts with students and
parents and to maintain improved records and data.

Historically, in Fairfield County there has been a lack of parent involvement in any program. 
Motivating SSA parents was no easy task, but nurturing and strengthening the small group of
devoted parents became a priority of the project.  These determined individuals remain a focal
point for parents.

Another problem is that there are few officers in the county spread over a large geographic
area.  It is difficult to depend on their attendance at functions.  It is also hard to evaluate the
officers' performance with regard to the program because their attendance is so erratic.

Successes and Accomplishments

On September 27, 1994, twenty 9th grade students graduated from the first Sheriff's Success
Academy.  Ten of those youth have been through additional leadership training and are now
serving as SSA Team Leaders for the second SSA class, which meets from December 1994
to September 1995.  This year's group currently has signed up 35 students, and a core of 25
is anticipated to attend consistently.

During the course of the program, students have actively participated in the following sessions: 
Orientation; Law-Related Education; Conflict Resolution; Tours including Department of
Juvenile Justice, Fairfield County Detention Center, Mack Trucks, WIS-TV, WWDM Radio;
Columbia Bombers Triple A Baseball Game; Formal Dinners; Ropes Course (outdoor
adventure); Overnight Weekend Experiences; Simulated Disaster Drill for Fairfield County;
Original Adventure Days created for the SSA, i.e., Survival Day, Mystery of the Snoop Doggy
Dog QT, Space Odyssey, and Luncheon with Kimberly Aiken of Columbia, SC, Miss America
1994; The Arts, writing and directing a play with our own set design; and The Sheriff's Family
Day. 

Not only have improvements occurred in attitudes, behaviors, willingness to take positive risks,
and increased responsibilities, but also there have been marked changes in physical demeanor,
vocabulary, respect, and a great amount of healthy laughter and smiles.  The best measures of
success are the beaming faces and genuine hugs from caring participants diverse in race,
gender, age, size, and backgrounds.  A survey of the participating students at the end of the
academic year showed that the kids had connected with better friends, had better grades, and
felt better about their community.

At the first graduation, six students had volunteered to prepare testimonials and present them
to an audience of nearly 100 people, including families, friends, and dignitaries.  Another eight
students presented an original play for which the entire class created the scenery and wrote the
music, song, and script.

Six parents from the previous year are actively mentoring and volunteering to assist wherever
they are needed.  This year's class has a core of parents who are just beginning to reach out
to others and renew the process of a parent network.

Besides having several articles published in the local and State newspapers, an outstanding
segment was recently aired by the local CBS affiliate, and both the NBC and ABC affiliates
are scheduled to cover the "lock-in" weekend at Sesquicentennial State Park in March.  A
comprehensive article on the SSA has appeared in the South Carolina Sheriff's Magazine, the
Lake Wateree Home Owners Association (WHOA) newsletter, and the State Association of
Crime Prevention Officers (SACPO) newsletter.  The National Sheriff's Association has also
requested an article for publication in their next quarterly magazine that reaches thousands of
sheriffs and other leaders in law enforcement.

Norma M. Higgins, Director of the Sheriff's Success Academy, pointed out another success
of the program.  "The Department of Juvenile Justice has told us that not one of ... (the)
children who has started with our program has ever been seen in their office since the program
began a little over one year ago.  As embryonic as these statistics are, it's a good beginning." 

Prospects for Replication

Initially, when the SSA was created, it was developed with the idea that it should be easily
transported to any community in the country.  If it can be successful in a poor rural county
with few resources and a volunteer base already overloaded with other community projects,
then the SSA can be successfully replicated anywhere.  The major ingredient is identifying a
director or chairperson with creativity, energy, and vision to bring the collaborative process
together.  When focusing on the Old African Proverb, "It takes a whole village to raise a
child," support and resources can be developed throughout all segments of the community.

Since the SSA is not a school-based program, any law enforcement agency or other determined
entity could coordinate such an academy.  The structure and guidelines are in place.  However,
since this program has no limits on creativity and scope, the possibilities are vast and exciting.


Contact Information

Norma M. Higgins 
Director 
Sheriff's Success Academy
Fairfield County Sheriff's Office
P.O. Box 387
Winnsboro, SC  29180   
(803) 635-5038
(803) 635-3325 fax

Herman Young
Sheriff
Fairfield County Sheriff's Office
P.O. Box 387
Winnsboro, SC  29180
(803) 635-5038
(803) 635-3325 faxTennessee


Weed & Seed


Statement of the Problem

According to studies and surveys conducted by the Planning Section of the Chattanooga Police
Department, drug trafficking and the crime associated with illegal narcotics were ranked as the
greatest concerns among residents in public housing, for several reasons.  First, street level
drug dealers provided a role model for youngsters in public housing complexes.  The drug
dealers frequently hired youngsters to hold the stash of illegal drugs or to act as look-outs.  The
youngsters were often impressed with the elaborate material goods such as cars, jewelry, and
expensive clothes and shoes worn by criminals.  Second, public housing offered a convenient
avenue of escape from police.  The criminals knew that they could run from police officers on
foot and stand a good chance of becoming lost in the crowd or hiding in the apartment of a
sympathetic resident.  Statistics show that most persons arrested for drug violations in public
housing are non-residents.  Another reason criminals prefer to operate from public housing
complexes is because of the dense concentration of people.  The advantages for criminals are
that higher levels of traffic are not as conspicuous to police and residents and that residents of
an apartment complex are less likely to complain about the increased flow of traffic.

Previous efforts to address drug trafficking in public housing did not alleviate the problem. 
This is demonstrated by the number of drug arrests by police in the targeted complexes.  Some
of these efforts included undercover drug operations, street level reverses which target users
in order to promote demand reduction, and Drug Abuse Resistance Education (DARE)
programs for youngsters in the complexes.

During the period before the Weed & Seed program, 485 persons were arrested and charged
with a total of 546 drug violations in the targeted complexes.  According to safety surveys
conducted by the local housing authority, many residents reported that they did not feel safe
in their apartment or in the complex and some residents reported that they slept on the floor
of their apartment for fear of being struck by a stray bullet.  In the Harriet Tubman
development, nine murders occurred during calendar year 1992.  A recreational facility was
constructed on this site and was operated for several years by the Citys Department of
Recreation.  Due to safety concerns several years ago, the facility was closed. 


Goals and Objectives

The goals of the program were to reduce the incidence of drug trafficking and the crime
associated with drug sales and usage in the targeted complexes.  It was hoped that, as a result
of the reduced drug activity, the public housing complexes could be a safer, more peaceful
place to live.

Another goal of the program was to provide residents the opportunity to become responsible
for their communities, identify goals, and develop strategies to achieve those goals.  In addition
to safety issues, a common concern of residents was their inability to obtain sufficient
employment to move from public housing and assistance and become self-sufficient.  Some
residents did not graduate from high school.  Many wanted to go to college in order to obtain
or improve marketable job skills.

The focus of the program is two-fold.  The weed portion involves intensive enforcement to
address crime and safety concerns in the complexes.  The seed portion is designed to organize
the residents associations of the targeted communities, the management of public housing, and
law enforcement into cohesive groups.  These groups are responsible for identifying problems
encountered by the residents of their respective complexes, identifying available resources, and
developing strategies which utilize the available resources to address the issues raised.


Program Components

Through a partnership between the police, public housing residents, and the public housing
authority, certain needy developments were targeted for the Weed & Seed program.  The first
step of program implementation was carried out by meeting with residents and management
to identify safety concerns in the targeted complexes.  Intensive enforcement was provided by
utilizing police officers on an overtime basis in conjunction with police officers assigned to the
Public Housing section of Chattanooga.

At the same time, management of public housing began a graffiti eradication campaign in the
targeted complexes.  Program administrators requested and received assistance in cleaning
complex grounds from the Community Corrections program.  Police officers maintained a high
visibility to prevent the return of open criminal activity in the complexes.  Residents stated that
a major safety problem in the complexes was caused by non-residents selling drugs in the
developments.  Signs were posted to warn trespassers that they would be arrested.

A stringent lease enforcement program was adopted to identify problem occupants and remove
them from the complexes.  Upon recommendation of the residents and police, a policy of
conducting background investigations of applicants to public housing was instituted by the
housing authority in order to prevent problems.Results and Impact

Performance Measures

The program anticipated a reduction in the incidence of drug arrests and charges in the targeted
complexes.  Another desired result was to instill pride in residents so they would no longer
tolerate crime in their communities, banding together to attack the problem. 

Implementation Problems and Successes

The program was received by the targeted complexes in a variety of ways.  The notion of weed
enforcement was resisted by some residents.  Shortly after implementation, a relative of their
residents association president was arrested on the site for selling narcotics.  The program
efforts were better received after a new president was elected.  Residents in other communities
were well organized and were able to accomplish a great deal with the assistance of the
program.  One development is currently undergoing an extensive modernization program, and
the residents association will require restructuring at the conclusion of the modernization.

Successes and Accomplishments

Initially, success was measured by drug arrests and decreases in crime and drug activity.  Drug
trafficking was moved away from the complex.  To truly measure success, a standard to
measure quality-of-life was needed.  A survey of residents, asking them if they felt safer, was
relied on more than crime statistics.  The residents are more satisfied now.  They call the police
more often, indicating greater confidence in law enforcement services.  There are now fewer
calls and incidents to report than at the beginning of the program, yet officers are often in the
projects walking their beats anyway.

Relationships with other agencies improved, particularly with the housing authority.  Now
residents and the police meet with the housing authority on a weekly basis.  Programs and the
coordination of the delivery of services are discussed.

The communities recruited help from Chattanooga State Community College and the Private
Industry Council.  Learning centers were established in the two larger targeted complexes to
help residents obtain their General Equivalency Diploma.  An extension campus of
Chattanooga State Community College was established on site at the Harriet Tubman
development, where residents are now able to take classes for college credit.  Residents of the
Maurice Poss Homes organized a jobs fair and worked to remove drive-up crack sales in their
community.  This was accomplished by installing a playground in the center of the
development, making through traffic an impossibility.  Substance abuse treatment is provided
on site at the Maurice Poss Homes and the Spencer McCallie Homes developments.  Some
younger residents of Emma Wheeler Homes participate in the Youth Bicycle Club.  Members
of the College Hill Courts have banded together with other residents in the neighborhood to form the Westside Redevelopment Corporation.  This group has spearheaded a proposal to
achieve site recognition by the national office of Weed & Seed.

The major success of Weed & Seed in Chattanooga has been the changing relationship of the
police with the residents.  In the beginning, the Homes were a "no go" zone for the police. 
Police went in as a group and left quickly after an arrest.  The program was initiated with new,
unbiased recruits.  Most of those recruits still work in the Homes after more than two years. 
The number of officers has grown from 10 to 17, and their role has changed.  They act as role
models and mentors for children. 

Prospects for Replication

The prospect for replication of this program in other sites or other cities is good.  The premise
of the program is simple.  First, allow the residents to identify their community concerns. 
Traditionally, law enforcement and news media have determined the needs of the community. 
Second, employ sufficient police resources to address safety concerns and maintain a visible
presence.  Third, look beyond the membership of a few groups or organizations for resources
to help solve problems.  Local businesses or other branches of government often are able and
willing to provide help in addressing community concerns.


Contact Information

Inspector Michael Glenn
Project Director
Weed & Seed
Chattanooga Police Department
330 Amnicola Highway
Chattanooga, TN  37406
(615) 926-1761
(615) 926-0627 faxTennessee


West Tennessee Regional Drug Prosecution Unit (RDPU)


Statement of the Problem

According to the Drug Enforcement Administration (DEA), Memphis is a major distribution
point for illegal commerce.  Within Memphis and Shelby Counties over the past seven years,
there has been a dramatic increase in cocaine use, arrests, convictions, and seizures.

There were only 65 juveniles arrested for cocaine-related offenses in Shelby County Juvenile
Court in 1986.  With the introduction of "crack cocaine," arrests increased 1,200% to over 900
in 1992.  In 1986, the Twenty-Eighth Judicial District, primarily a rural area, reported only six
cocaine arrests.  In 1992, 154 people were arrested for cocaine-related offenses.  In 1988, in
the Twenty-Sixth Judicial District marijuana cases outnumbered cocaine cases.  There were no
firearms involved in any of the arrests.  By contrast, in 1992, cocaine arrests outnumbered
marijuana cases, and firearms, especially handguns, were prevalent when arrests were made.

DEA and local rural investigators have reported a marked increase in the presence of crack
cocaine in rural areas.  Prior to its arrival, drug prosecutions in rural areas were primarily for
marijuana.  Rural law enforcement officials were hindered because of their unfamiliarity with
methods to conduct investigations and prosecutions of street dealers.  Rural officers had few
or no common links to the cities.  Communication and interest from the big counties to the
rural areas was almost non-existent.

There was a need to develop cooperation to determine who, where, and how drugs and
associated violent crimes were being moved into the West Tennessee rural areas.  After this
information brought about arrests, prosecution needed to be performed by prosecutors familiar
with all facets of prosecution of drug offenses and gang violence.  Accessible training of rural
officers needed to be offered.


Goals and Objectives

One goal was to institute a mechanism for the judicial districts to target mid and upper-level
manufacturers, dealers, and distributors for prosecution under Federal and State statutes.  The
program also sought to develop an officer-exchange program between the large cities and
counties in the judicial districts to allow rural law enforcement agencies to conduct undercover
operations.  Finally, the program provides a forum for the sharing of experience, training, and
expertise between the prosecutors and law enforcement personnel within the districts, which
could lead to higher conviction rates throughout the West Tennessee region.Program Components

The West Tennessee Regional Drug Prosecution Unit (WTRDPU) began to operate in January
1994.  The Unit Director is appointed and approved by the six Judicial District Attorney
Generals who represent the sixteen-county target area.  Two Criminal Investigators and a
Statistician were employed to initiate cooperation and investigation.  These operations were
implemented out of the Thirtieth Judicial District Attorney General's Office in Memphis, which
provides office and phone service at no charge, in addition to vehicles for investigators.  An
agreement entered into by the Thirtieth Judicial District with the 25th, 26th, 27th, 28th, and
29th Judicial Districts allows for cooperative investigations and prosecutions to take place in
their respective districts.

Because rural prosecutors are often unskilled at prosecuting drug offenders, a general
prosecutor was appointed to all six districts to prosecute drug cases.  Through the RDPU,
investigators go into the districts and conduct investigations of drug-related crimes. 
Undercover officers are also provided to rural jurisdictions through urban police departments
by the RDPU to conduct investigations that would be impossible for the local, well-known
police officers to conduct.


Results and Impact

Performance Measures

The success of the program is measured in several ways.  Prosecution priorities and
enforcement operations will be established with targeted individuals and organizations listed
for investigation and prosecution both in Federal and State courts.  Special emphasis will be
placed on those activities affecting more than one judicial district:  (1) the creation of a
mechanism for the collection and sharing of data and setting of enforcement activities and
priorities; (2) the sharing of manpower, enforcement, expertise, and training in both prosecution
and enforcement activities between the urban prosecutors and enforcement personnel and their
rural counterparts; and (3) the establishment of a Regional Drug Prosecution Unit that will
develop a cohesive strategy and enforcement priorities between the six Judicial District
Attorney General's Offices and the law enforcement agencies within the West Tennessee area.

Implementation Problems and Successes

One problem was the amount of time required for the Director and the investigators to travel,
limiting the actual time spent with the agencies visited.  Two criminal investigators living and
working in the rural areas with the rural agencies as part of the RDPU helped limit travel.

Another problem was the reluctance of rural law enforcement agencies to accept outside help
from large metropolitan areas.  This was alleviated by building trust through training, maintaining a presence in the area through two permanently placed RDPU staff members, and
working the investigations with the local officers.

There was also a reluctance of small law enforcement agencies to share information on their
major targets and organizations for fear of being excluded from the arrests and seizures as well
as any publicity received from the investigation.  These fears were calmed over time as trust
built between rural sheriffs and police chiefs and the RDPU.

There was also a reluctance on the part of sheriffs or police chiefs in rural areas to allow their
only investigator or officer to work in another jurisdiction for fear of liability.  This was
resolved when the Memphis Police Department took over the liability of officers brought in
to work with rural agencies.  In addition, sheriffs and police chiefs hesitated to allow officers
to leave the department for out-of-county training because of the need for manpower.

Finally, judicial district prosecutors failed to relinquish prosecution of their drug and violent
crime defendants to the Unit Director for fear of showing an inability to handle the cases,
which would overshadow their chances for re-election.

Successes and Accomplishments
 
Continued meetings with West Tennessee area law enforcement officers alleviated their fears
and the tension of not participating in the initial investigations.  The Unit's participation with
these rural law enforcement agencies in investigations and the sharing of information with them
on the smallest of details brought about trust and accessibility for the West Tennessee Regional
Drug Prosecution Unit.  Two additional criminal investigators were placed in these rural areas
alongside the agencies.  "Cooperation, which was almost non-existent before the grant, is now
visible and defined with the goal of assisting each other in law enforcement arrest and
prosecution," according to Captain Jim Harris of the Western Tennessee Regional Drug
Prosecution Unit.

Training sessions are held outside Memphis/Shelby County in different locations so that
officers may attend from all over the region.  Training topics cover items that rural officers
need to address including gang recognition and high-risk entry techniques.  To date, five
sessions have been held, and over 357 officers have been trained, representing 120 law
enforcement agencies.

Establishment of an officer-loaner program between WTRDPU, Memphis-Shelby County law
enforcement agencies, and the rural police and sheriff's departments has been responsible for
over seven operations, resulting in over forty-five arrests of drug and violent crime offenders. 
The officer-loaner program is necessary to rural departments because the members of the rural
law enforcement agencies are known by the offenders within the community, and most
undercover operations would be impossible without outside assistance.

The establishment of a "hot line" in one rural county in the southeastern section of the RDPU
targeted area has allowed citizen involvement in the arrest of drug and violent crime offenders. 
This request came from an area previously not known to take any type of action against drug
or violent crime offenders.  This joint effort by city, county, and judicial task force officers,
along with RDPU investigators, has opened a door which had long been closed to law
enforcement agencies in that area.

Movement of unit personnel into the Federal Bureau of Investigation Gang Task Force Office
increased members' knowledge of gangs and gang problems within the targeted area.

Prospects for Replication

To replicate this program, enough investigators are needed to cover each county and attorney
general.  These investigators must have experience in working with law enforcement officers.


Contact Information

Captain Jim Harris
Western Tennessee Regional Drug Prosecution Unit
Attorney General's Office
201 Poplar
Suite 3-1
Memphis, TN  38103
(901) 747-9554
(901) 576-3937 faxTexas


Safe Haven Program:  Operation Weed & Seed


Statement of the Problem

The increased incidence of juvenile-related crime is a clear indication that substantial needs of
young people have been neglected.  Today's youth, on average, spend barely 9% of their first
18 years in school.  The other 91% is spent at home, on playgrounds, and in front of the
television.  For too many children, the family that should be their protector, advocate, and
moral anchor is itself in a state of deterioration.  In addition, the neighborhood is a place of
menace, violence, drug use, unemployment, and other modern maladies.  Enormous financial
investments have been made in law enforcement and social services, but all too often these
agencies provide their services with little effort to coordinate programs and strategies.  Clearly
these are problems that are not amenable to solutions by a single agency.  Providing a place
where youth and other residents can develop relationships, find opportunities to be productive
and successful, and enhance their skills -- a safe haven -- fosters an atmosphere necessary for
positive development. 


Goals and Objectives

The Safe Haven concept is an important aspect of Weed & Seed.  Weed & Seed is a
multiagency strategy that weeds out violent crime, gang activity, drug use, and drug trafficking
in targeted high-crime neighborhoods and seeds the areas by restoring these neighborhoods
through social and economic revitalization efforts.  The Weed & Seed strategy recognizes the
importance of collaborative initiatives to maximize the impact of existing programs and
resources.  

In the beginning, the objectives for the Safe Haven programs in San Antonio included:

          identifying and assessing existing Safe Haven programs nationwide, with
           specific emphasis on drug and alcohol prevention components and the feasibility
           of introducing Safe Haven programs into public housing developments;
      
          defining and developing the concept for a local Safe Haven program; 
      
          preparing a training curriculum and technical assistance material;
      
          providing training and technical assistance for components of the Safe Haven
           program; and

          providing financial resources for implementation of the Safe Haven program that
           focus on drug and alcohol prevention issues.

The goals of the program are:

          to establish a multiservice education center that is free of drugs, alcohol, and
           violence;

          to provide direction and capability for organizing and coordinating the delivery
           of public and private educational, social and justice-system resources for youth,
           their families, and others through the Safe Haven multiservice center; and

          to enable neighborhood youth and adults to become productive and law-abiding
           citizens, free from drug and alcohol abuse and the influence of gangs through
           the use of Safe Haven multiservice centers.

The San Antonio Safe Haven program developed goals specific to the local target area.  These
goals include:

          providing a safe environment that will nurture interaction between adults and
           youth;

          involving participants in recreational activities;

          deterring drug and alcohol involvement through drug and alcohol education;

          offering space for agencies to provide supportive services in the Safe Haven;

          working with the San Antonio Police Department and other law enforcement
           agencies in the development of crime prevention programs; and

          improving the environment in the community through involvement in
           beautification projects.


Program Components

A Safe Haven is a multiservice center where a variety of youth and adult services are located
in a highly visible and accessible facility that is secure against crime and illegal drug activity. 
It brings together law enforcement, community services, basic and continuing education, health,
recreation, employment, and other key sectors to provide opportunities, skills, and recognition
for young people, their family members, and other residents of the community in a safe
environment.  A special emphasis is placed on education.

San Antonio Weed & Seed has established three Safe Haven sites.  A community center, a
housing project, and a local elementary school provide locations throughout the Weed & Seed
target area for the San Antonio Safe Havens.  Since virtually all neighborhoods are served by
schools, primary consideration was given to locating a Safe Haven at a school site.  However,
in communities where a school building is not available, other sites to explore include
community centers, public housing developments, churches or temples, or other secure,
accessible, and appropriately equipped buildings.

The Safe Havens are open after school and, to the extent possible, before normal school hours. 
Operational considerations depend on local conditions.  A variety of services and supportive
programs (educational, cultural, recreational, health, and justice-related) are made available. 
Educational programs addressing the social climate such as gang alternatives and drug and
alcohol abuse prevention are emphasized.  While a primary focus of the Safe Haven program
is to provide youth living in the area with productive activities and a safe place to go, parents
of the youth and other residents in the target area are also served.  

The services Safe Havens provide are targeted at people who are in need of assistance and
guidance within the community.  These services cannot be provided without the combined
efforts of community agencies and grassroots organizations that support the program in a
financial and volunteer capacity.  San Antonio has an extensive network of agencies to provide
services to the Safe Haven project through the Weed & Seed program.  The following agencies
are some which provide resources in San Antonio:  the U.S. Attorney's Office, Western
District of Texas; San Antonio Police Department; San Antonio Fighting Back; Davis/Scott
YMCA; New Light Tenant Association; Springview Resident Association; King Middle
School; San Antonio Council on Alcohol and Drug Abuse; Claude W. Black Center; Barbara
Jordan Community Center; Boys And Girls Club, Springview Branch; Crossroads Missionary
Baptist Church; Weed & Seed Advisory committee; Palmer Drug Abuse; San Antonio Literacy
Council; Police Athletic League (PAL); and Communities in Schools. 
      
Specific services and activities made available to the participants of the Safe Havens include
tutoring, rap sessions, drug prevention education, and drug counseling.  PAL provides
recreational opportunities to youths involved in the Safe Haven program.  Local professional
sports organizations actively support the activities of PAL.  Opportunities include the San
Antonio Spurs Drug Free Basketball League, San Antonio Mission Baseball League, modeling,
karate, and numerous other activities designed to enhance self esteem and develop positive
team building and decision-making skills.  Through support provided by additional agencies,
the Safe Havens provide guest speakers to address social and cultural concerns.  Field trips and
special occasion events are also provided by the San Antonio Safe Havens.

Project Assist was developed in coordination with the Safe Havens.  The goal of this project
is to benefit the spiritual, physical, and mental needs of children through counseling, tutoring,
and referrals in a family-oriented setting.  Supporting the Safe Haven initiative, the Family
Service Association of San Antonio, Inc. partnered with the Safe Havens to develop a
curriculum for girls between ages nine and thirteen.  Some sessions include Feelings
Identification, Feelings Expression and Anger Management, Self-Esteem Building, and a
Modeling Club in coordination with PAL.


Results and Impact

Performance Measures

The San Antonio Safe Haven Program began as a "Cities in Schools, Inc." (Communities in
Schools locally) project contracted to San Antonio Fighting Back.  San Antonio Fighting Back
is one of the 14 national drug prevention initiatives funded by the Robert Wood Johnson
Foundation, the largest health care philanthropy in the world, and the United Way of San
Antonio and Bexar County.  Because preliminary program design is contingent on assessments
and expectations based on those assessments, meeting the needs of the community is critical
to the success of any service-based program.  San Antonio Fighting Back had been involved
in a two-year needs assessment, planning, and implementation process to develop
comprehensive drug and crime prevention strategies.  This work provided the infrastructure and
foundation for the Safe Haven project.  Therefore, some of the initial steps involved in
developing a Safe Haven program were completed prior to the Cities in Schools, Inc. project. 
They comprise the following four activities:

          Community Assessment:  risk; protective; resiliency; community needs;
           community resources; attitudes and perceptions with regard to substance use,
           abuse, and crime; community leadership; and broader community support for
           substance abuse and crime prevention programs;

          Community Training:  organization and mobilization; advocacy skills; and
           organization development and maintenance;

          Resource Development:  in-kind support; acquisition of grant funds; Federal;
           State; local; private foundation; and private sector; and

          Evaluation:  evaluation plan; performance measures; evaluation instrument; and
           evaluation contractor.

Implementation Problems and Successes

The difficulties encountered during implementation of the San Antonio Safe Haven program
have been few and primarily financial.  Funding considerations are significant with the
initiation of any new program.  San Antonio was fortunate to have received grant funding to
support the Safe Haven concept.  Resources have been attained through collaborative efforts
and grant funding and private sector support have been sought.

The San Antonio Safe Haven project is managed by a coordinator with minimal support staff. 
Initially, the staff to participant ratio provided inefficient provision of services.  That problem
was solved when San Antonio received funding for the Americorps/Just Serve program.  Using
Americorps members in the program has shifted the participant to staff ratio.

Successes and Accomplishments

San Antonio Safe Haven programs have exceeded initial expectations.  Program administrators
did not expect so many people to use the facilities.  The project was expected to serve 20
children at two sites.  The local Safe Havens serve an average of 45 youth and adults, and a
third Safe Haven site was established in 1994.  Service support has also grown.  Local
professionals, community leaders, and area residents have provided additional resources.
 
Two major successes have been that the philosophy of the police department has changed and
that the relationship between the police and the community has improved.  Now, after school
the children come looking for the police officers who are their "pals."  There has been a
change in officers who have done the Weed & Seed training:  they are less cynical and less
prone to burnout.

The Safe Havens in San Antonio have successfully involved youth and other area residents in
numerous projects.  Feeding the homeless, elderly, disabled, and hungry was a collaborative
effort between the Safe Havens and two churches -- Crossroads Missionary Baptist and Good
Faith News Missionary Baptist church.  

The Safe Haven concept has been well received in the San Antonio area and was highlighted
by local news channels.  In April 1994, media coverage focusing on what is being done to
combat the violence in San Antonio featured youth from the San Antonio Safe Havens.  Many
of the youth interviewed stated that the Safe Havens provided a safe and fun place to learn,
play, and work together.

Twenty youths and one adult from the Safe Havens participated in the Anti-Drug Conference
held at St. Mary's University in August 1994.  They were involved in workshops, team
competitions, self-esteem building, recreation, dance, and talent shows.  This was the first time
many of these youths had ever been on a University campus.

In conjunction with San Antonio Fighting Back, San Antonio Housing Authority, Fort Sam
Houston, and the Weed & Seed Safe Havens, 15 youths were given the opportunity to be
involved with military and civilian personnel in a military setting.  La Salida, The Way Out,
is a two-day adventure designed to provide an atmosphere to nurture and enhance the self
image of students and work to break the chain of drugs, gangs, and negative peer pressure as
well as provide physical challenges.

During her visit to the San Antonio Weed & Seed site, U.S. Attorney General Janet Reno
provided an exciting opportunity for Safe Haven youth involved with the Learning Garden to
proudly display their horticultural successes.

Prospects for Replication

The Safe Haven facilities have proved to be accessible to the whole community.  Ideal
locations for Safe Havens are schools, public housing facilities, or community centers.  The
established relationships with community and city agencies eased the initiation of Safe Havens. 
The delivery of services in an established organization can enhance existing projects and
expand available resources.  Working collaboratively to assess and address the needs of the
community provided a foundation for success in the Safe Haven implementation.

With regard to obtaining resources, Detective Carolyn Pastol, the San Antonio Weed & Seed
Coordinator, says that "Resources come to you in some of the most unusual ways.  Don't turn
any of them away.  Get out and start tapping into some of them."


Contact Information

Carolyn Pastol
Detective
Weed & Seed Coordinator
214 West Nueva
San Antonio, TX  78205
(210) 207-7615
(210) 299-7592 fax