A Clo

In Partnership With 

Street Gangs and 

Interventions: 

Innovative Problem Solving 

with Network Analysis

www.c

by: 

Jean M. McGloin 

University of Maryland 

Street Gangs and 

Interventions: 

Innovative Problem Solving 

with Network Analysis 

by: 

Jean M. McGloin 

University of Maryland 

This project was supported by cooperative agreement #2003CK

Office of Community Oriented Policing Services, U.S. Departm

The opinions contained herein are those of the author(s) and d

represent the official position of the U.S. Department of Justic

specific companies, products, or services should not be consid

endorsement of the product by the author(s) or the U.S. Depart

Rather, the references are illustrations to supplement discussio

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Acknowledgements 

The author gratefully acknowledges the guidance and help offered by 

Dr. George L. Kelling, Dr. Anthony A. Braga, and the anonymous peer 

research described here was completed as part of the North Jersey G

under the direction of the Police Institute, at Rutgers University-Newa

also wishes to acknowledge the panelists and members at the Nation

Session II, hosted by Chief William J. Bratton, Los Angeles Police De

supported by the U.S. Department of Justice Office of Community Ori

Services. The National Gang Executive Session II focused on interven

prevention programs designed to address gang crime through innovat

with law enforcement. The influential dialogue among the participan

essential component to the development of this publication. A specia

planning committee members: Joan Brody, Jean Chan, Frank Hartman

Kelling, Sergeant Sean Malinowksi, and Michael Seelman. 

Abstract 

This paper briefly reviews the range of prevention, intervention, supp

comprehensive strategies, providing examples of each type. It then o

of problem analysis in Newark, New Jersey. The Greater Newark Sa

(GNSCI) began in 1996 as a collaborative effort among law enforceme

groups, social service agencies, clergy, and Rutgers University to add

the local violence problem. By 2003, the partners in GNSCI expresse

perceived growth in street gangs and related crime. Accordingly, the 

Task Force emerged under the framework and from the existing partn

This paper discusses the unique utility of network analysis in the resu

analysis and underscores the important role of an academic research 

the paper considers the importance of sustainability with regard to pr

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Introduction 

In light of the growing numbers, geographical spread, an

changes of street gangs in the 1990s, many consider them 

worthy of law enforcement attention, regardless of locale

though most gangs exist in urban environments and are p

minority males, they are not limited to such locations or 

The age range of gang members appears to be broadenin

gangs seem to illustrate greater gender and ethnic diversi

addition, as the number of gangs and gang members with

environments has increased they have also spread across 

into rural areas.3 Finally, the line between prison and stre

becoming muddied as gang members flow in and out of t

system.4 Certainly, law enforcement has a difficult task in 

address this evolving and longstanding problem. This tas

necessarily more difficult than the new problems that are 

local law enforcement, such as internet crime and terrori

enduring nature of street gangs, as well as their diverse a

nature, poses a unique challenge. 

Turning to the existing research only serves to underscor

complicated nature by highlighting variation in gang type

and crime. Indeed, there are many gang varieties. Often, 

difference include size, longevity, level of organization, d

characteristics, and favored criminal behavior (if any is d

Other research has shed light on variation in the levels of 

membership.6 Consistent with the finding that full-fledge

membership often is a gradual, social process,7 there are 

the level to which individuals are affiliated with, or invol

gangs. These increasing levels of affiliation are positively 

increasing levels of criminal behavior, stressing the fact t

youths who are not members, but only associates of a ga

more criminal behavior than those who are not involved. 

range of problems that may face law enforcement with st

vast when considering the various gang types, levels of m

and crimes that can emerge. 
COPS Innovations 

2 

Academics, law enforcement, and citizens agree that stre

significantly damaging impact on a community and its re

play a role in firearm transactions and violence, drug sale

home invasions, car theft, homicide, and/or a general dec

quality of life, along with a number of other crime proble

are not necessarily new to law enforcement—indeed, the 

number of the most problematic gang members who ofte

issues are typically well-known among criminal justice a

the nature of gang involvement often requires a particula

added") understanding. Just as law enforcement engages 

oriented policing for particular crime problems, they sho

attempt a problem analysis of the involved street gangs. T

particularly important because gangs are unique phenom

to time and place.8 Failing to undertake an appropriate pr

not only of the specific crime problem at hand, whether c

firearm violence, or other crimes, but also of the gang lan

result in a futile, even harmful, response strategy. For exa

strategy in Nevada relied on the incorrect notion that loc

similar to those in Los Angeles. It is no surprise, therefor

ineffective.9 

Prevention, Intervention, Suppression, and Comprehensive Strategie

The options before law enforcement when attempting to 

gang problem(s) exist on a large spectrum, with regard to 

tactics. This is logical, given the previously mentioned v

potential problems. As others have noted,10 programs may 

prevention, to intervention, to suppression, to comprehen

These different categories have the aim of reducing prob

with street gangs, but the manner by which they do that, 

nature of the problems of interest, deserve brief elaborati

illustrates this spectrum. In particular, this figure shows t

and intervention/suppression programs typically respond 

levels of risk and problems. It also details the different fo

techniques and how comprehensive strategies rely on a c

tactics. The forthcoming paragraphs explain this spectrum 

detail. 
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Figure 1. A Schematic of Prevention, Intervention, Supp

Comprehensive Programs. 

Some risk (sometimes minimal) 

exists (e.g., local youth are at 

risk for joining street gangs; 

there is a risk for street gangs to 

emerge and/or grow in a 

particular geographic location) 

Risk has ma

an actual pro

emergence a

of local stree

gang memb

among local 

Prevention Programs Intervention 

Progr

Attempt to prevent Tend to have a 

gang membership, gang social service 

crime, and/or gang orientation; focus 

emergence/growth re-integrating 

gang members 

into the communi

Comprehensive Programs 

These programs combine intervention 

and suppression techniques, as well as 

(at times) prevention tactics; necessitate 

collaboration among numerous agencies 

and groups 
COPS Innovations 

First, prevention programs have the broadest audience of 

strategies are typically aimed at groups that pose some ri

broadly, at general populations. For example, a preventio

focus on preschool children who reside in gang neighbor

they show any symptoms of having joined the gang life. 

rarely make divisions among the types of street gangs; th

is to reduce gang membership regardless of category. Per

known gang prevention program is Gang Resistance Edu

Training (G.R.E.A.T.), which has the aim of reducing the 

youth joining a street gang. Evaluation results suggest th

G.R.E.A.T. has positive short term effects on gang-relate

attitudes, a four-year follow-up revealed no impact on ga

or delinquent behavior.

11 Still, “G.R.E.A.T. was able to su

change several risk factors (e.g., peer group associations 

about gangs, law enforcement, and risk-seeking behavior

with delinquency and gang membership."12 

Second, intervention strategies typically address individu

that have manifested some problem; that is, the situation 

past risk. In most cases, such programs attempt to persua

members or gang-affiliated youth to abandon their curren

reduce gang-related crime. At this stage, defining the typ

interest, the level of individual involvement in the gang(s

the specific problem of focus becomes extremely importa

to any success. Intervention programs may include such 

gang truce or the use of detached workers to persuade ga

leave gang life and reintegrate into the community. One i

intervention program moved the spotlight of the strategy 

streets with the assumption that hospitals provided uniqu

4 

The G.R.E.A.T. Program, administered by the Office of Justice 

(OJP) Bureau of Justice Assistance (BJA), is a school-based, 

officer-instructed classroom curriculum. The program's primary 

prevention and is intended as an immunization against delinqu

violence, and gang membership. G.R.E.A.T. lessons focus on 

skills to students to help them avoid delinquent behavior and v

problems. To learn more, go to http://www.great-online.org/. 

address gang problems. 
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In Oakland, California, a non-profit group helped to deve

emergency room-based intervention, entitled Caught in th

aimed at reducing gang-related youth violence and death

which includes previous victims of violence, provides su

mentorship to victims of youth violence who are admitte

hospital. Beginning with bedside visits and extending int

staff works to identify the needs of the victim (e.g., empl

services, mental health), prevent retaliation, and aid in hi

reintegration into the community. The staff also provides 

to local youth on probation for violent offenses. Accordin

evaluation, hospitalized youth who took part in the proje

less likely to be arrested and 60% less likely to evidence 

involvement than hospitalized youth who did not partake 

program.13 

Third, suppression programs also have the aim of reducin

activities, but they typically rely on the law as a guide an

justice agencies as the primary, and often only, partners. 

techniques characteristically depend on deterrence princi

include law enforcement task forces or units, vertical pro

sentencing enhancements. As with intervention programs

hinges on developing a plan based on a problem analysis 

the gang problem in that jurisdiction. For example, in 19

Angeles Police Department (LAPD) launched Operation 

(OCDS) in a community permeated by gangs and violent 

activities. The strategy operated on the premise that gang

criminal opportunities and that if such opportunities coul

out", crime would decline. OCDS, therefore, erected traf

limit access to major roadways and the gang members' m

spots of crime. By limiting direct access to such hot spot

essentially created temporary cul-de-sacs, resulting in sig

fewer gang-related homicides and assaults. 

Caught in the Crossfire is a program of Youth ALIVE!, a non-p

health organization dedicated to reducing violent injuries and d

youth in California through education, prevention, and researc

works with communities most at risk for violence and seeks to 

residents to advocate for violence prevention, to address the s

emotional impact of violence in their communities, and make t

communities safer places to live. To learn more, go to 

http://www.youthalive.org/caught.html. 
COPS Innovations 

In the summer of 2003, the city of Chicago began install

cameras as part of Operation Disruption, an aggressive u

surveillance to curb violent, often gang-related, crime. Th

which can swivel 360o and have the capacity to zoom in 

interest, can film in both day and night and serve to alert 

to criminal activities. Like a somewhat similar strategy in 

crime has declined since installation of the cameras, altho

unclear whether this is because of the program. To be sur

operating alone, suppression techniques are rarely succes

long term.14 Even if a program appears successful in the s

gangs tend to endure because law enforcement can rarely 

completely, nor do they have the resources to sustain suc

focus over time and across all gangs and gang members. 

crime may simply be displaced and there is the added ris

gang a collective point of conflict, which may increase th

and criminal activities. Suppression techniques certainly 

but appear to provide the most benefit when part of a larg

comprehensive program that couples them with social in

tactics.15 

6 

Operation Cul-De-Sac uses traffic barriers to block gang mobi

that gang violence was partly the result of criminal opportunity

enforcement closed all major roads leading to and from the ide

by placing freewaydividers at the end of the streets that led di

hotspots. This reconfiguration essentially created cul-de-sacs, 

hamper "hit-and-run" crimes such as drive-by shootings. For 

assessment of this and other youth gang prevention and supp

programs, go to the Office of Justice Program's (OJP) Office o

Justice and Delinquency Prevention's (OJJDP) Youth Gang Pr

Strategies (2000) at http://www.ncjrs.gov/pdffiles1/ojjdp/17115

Operation Disruption involves the use of portable units mounte

and other fixtures in strategic locations. Each unit will be equip

variety of technologies, including cameras that have the ability 

criminal activity blocks away. The goal of Operation Disruption 

visible crime deterrent in communities that have experienced a 

of violent crime. For more information, go to 

http://www.cityofchicago.org/police. 
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Finally, collaborative, comprehensive programs typically 

prevention, intervention, and suppression techniques and 

collective work of a variety of agencies, from criminal ju

service, to mental health, to faith-based groups. Though t

require intensive resources and time, such programs appe

most promising in areas that have an array of problems s

gang problem and fit well within an existing community 

framework and philosophy. In addition, should a particul

numerous problems, such as intense gang recruitment in 

sales, and gang-related homicides, it may require a variet

and partners to best address the issues at hand. Each agen

leverage and resources that can serve the problem and co

those of its partners. Perhaps the best-known comprehen

the Boston Gun Project, both for its innovation and succe

The Boston Gun Project and the consequent Operation C

as an attempt to develop, initiate and evaluate an interven

addressing the dramatic increase in local youth violence. 

partnerships that formed the base of this strategy (in both 

and implementation phases) included local, state, and fed

justice agencies (e.g., law enforcement, probation, prosec

social service agencies, academic researchers, as well as 

faith-based groups. After an in-depth analysis of quantita

qualitative data, the project selected a strategy of focused 

combined suppressive and social intervention techniques

with a focus on shutting down the city's illegal firearms t

Operation Ceasefire relied on the tactic of "pulling levers

came into focus because of violent behavior, the relevant 

pull every potential criminal justice sanction "lever" for t

gang and/or gang member(s). At the same time, opportun

access to, social services were made available to gang m

an alternative to life in the gang. An evaluation found tha

Ceasefire was associated with a decline in youth homicid

assaults, and "shots-fired" calls for service.17 

The Boston Gun Project was a problem-oriented policing initiative 

at taking on a serious, large-scale crime problem — homicide vic

young people in Boston. Sponsored by the National Institute of Ju

by David M. Kennedy, Anthony A. Braga, and Anne M. Piehl of H

John F. Kennedy School of Government, the Project began in ear

 implemented what is now known as the "Operation Ceasefire" inte

 began in the late spring of 1996. Operation Ceasefire was an inno

 between researchers and practitioners brought together to assess 

 homicide problem and implement an intervention designed to hav

 near-term impact on the problem. For more information, go to 

http://www.ksg.harvard.edu/criminaljustice/research/bpg.htm. 
COPS Innovations 

This comprehensive framework, which is mirrored in Pro

Neighborhoods and the Office of Justice Program's (OJP

Juvenile Justice and Delinquency Prevention's (OJJDP) C

Gang Model, has been replicated across many sites, inclu

Minneapolis, and Los Angeles.18 Also known as the Sper

Intervention and Suppression, the OJJDP model was nam

Spergel of the University of Chicago, who directed the in

project. The model calls for a team of community agenci

to deliver five core strategies through an integrated appro

mobilization; social intervention, including street outreac

opportunities; suppression; and organizational change. 

The Need for Problem Analysis 

Many gang programs are interesting and hold promise, b

not be taken as a signal for the immediate adoption of pa

or of their long-term effectiveness. Articles or reports rar

problem that a strategy is meant to address, seldom descr

program in full detail, and rarely contain an evaluation. A

issue before law enforcement, an effective strategy must 

preceding problem analysis that takes the time and the ca

various components of the situation.19 Gang problems in 

are pressing and waiting to complete an analysis is diffic

the consequences of failing to engage in this step may be 

misinformed strategy may possess ineffective tactics, ma

impotent, or worse, leading to a further decline of the situ

The remainder of this publication focuses on a case study 

an example of problem solving in Newark, New Jersey, w

innovative way to investigate a local gang landscape. Th

highlights how one problem-solving effort may serve as 

foundation for another. While the gang project is still in d

the process and the preliminary findings are nonetheless 

In many instances, the problem analysis phase of a strate

longer than the intervention stage. At the same time, it m

going. For example, Newark research partner Dr. George 

that it took a full year to understand the problems plaguin

City's subways, yet only a few months to manage it effec

often the most difficult portion of an intervention and req

attention because people tend to get distracted by other c

problems. It is careful analysis, however, that will lead to 

By detailing the Newark case study, this paper hopes to p

examples of potential pathways for understanding local g

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This example also highlights the importance of an academ

such problem solving endeavors. It is unlikely that the an

referenced here would have been generated by many law 

agencies. Indeed, some have noted that "most police offi

probably more prone to action than to research."20 While 

techniques have permeated into many law enforcement d

network analysis (the technique later described) has yet t

recognizably useful analytic tool in most law enforcemen

Academic partners provide access to analytic expertise, a

resources, which can provide unique insight to the proble

process. Simply put, an academic-law enforcement partn

potential to be a particularly beneficial collaboration.21 

An Example of a Local Problem Analysis 

In 1996, the director of the Newark Police Department, J

Santiago, approached the School of Criminal Justice at R

University, Professor George Kelling in particular, and as

could provide help addressing violence in Newark. While 

recently illustrated a fairly sharp decline in violence (mu

aggravated assault, and rape), its violent crime index still 

those of Boston, New York, and Philadelphia. Despite th

newly instituted CompStat, Director Santiago was concer

in Newark appeared immune to law enforcement tactics. 

School of Criminal Justice has the goal of training resear

urban environment and Professor Kelling has a professio

the Newark Police Department, 

22 a relationship began ba

goal: reduce violence in the city of Newark. This project 

as the Greater Newark Safer Cities Initiative (GNSCI). 
COPS Innovations 

One of the benefits of the School of Criminal Justice serv

organizer of a problem analysis is that it could serve as a 

convener." The neutral convener is critical because it has 

to raise questions, highlight problems, and corral attentio

particular issue since it is not perceived as having an alle

one stakeholder at the table.23 We certainly found that thi

with GNSCI. Simply, Rutgers existed outside the inter-or

relationships, and, therefore, the provost of Rutgers-New

to gather various stakeholders for an initial meeting. This 

hosted at Rutgers, included the Newark Police Departme

States Attorney's Office for New Jersey, the New Jersey A

General's Office, and the School of Criminal Justice. 

During the next three years, the School of Criminal Justi

build relationships with and across agencies. This was no

often because of past problems and perceived conflicting 

Forging successful partnerships is a difficult task and it i

for different orientations, perceptions of responsibilities, 

pressures, and priorities to act as significant hurdles.24 Sti

partners are able to agree on a common goal and are will

communicate and work through such difficulties, forging 

collaborative relationship often is a linchpin of problem a

intervention success. By 1999, staff began collecting data 

the violence problem in Newark—it took three years to c

that it may be time to change the way of doing business t

quality of life and reduce violence in this city. 

The importance of collaboration in this project, and in pr

exercises in general, cannot be overstated. Forging these 

can be difficult, but often they are integral to understandi

at hand by combining information and perspectives. For 

Strategic Approaches to Community Safety Initiative in S

U.S. Attorney had the political power to push past roadbl

ensure open access to data.25 In a similar manner, the Atto

Office of New Jersey served to convince certain partners

local prosecutors, to participate in GNSCI during the ear

the same time, these partnerships also expand the utility 

of the intervention itself. To be sure, various partners pro

resources and capabilities that complement and structure 

comprehensive strategy. As an example, the Ten Point Co

as the Boston Streetworkers, provided a base of legitimac

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enforcement action in the Boston Gun Project.26 In a simi

clergy of Newark opened the churches as locations for th

sessions for the offenders of interest, which provided mo

to GNSCI in the community. 

Recent law enforcement programs have explicitly recogn

importance of forging and sustaining such partnerships. I

Project Safe Neighborhoods initiative has "partnership" a

five core elements. At a minimum, this framework recog

that a truly comprehensive gun-violence intervention mu

federal, state, and local law enforcement, as well as prose

inherent stakeholders. In addition, collaboration was one 

pillars for two of the best-known gun violence programs, 

their respective replications across the nation: Operation 

Boston, Massachusetts and Project Exile in Richmond, V

Partnerships and collaboration are moving past being con

advisable to being considered essential when addressing 

problems.27 

By 2000, GNSCI had established what has become its co

biweekly meetings hosted by Rutgers University that inc

enforcement and prosecution agencies (local, state, and f

probation, social service providers, clergy, community gr

public defender, and various mental health, substance abu

employment agencies. These partners had a stake in the v

problem in Newark, all had insight into the problem and 

unique resources that potentially could help address this 

working group had the task of addressing the primary fin

data analysis. Like many cities, a small portion of people 

for the majority of the violence and the people who are k

those being killed are remarkably similar. Whether indivi

or are the killers seemingly depends on chance. Similar 

large proportion of these problematic people in Newark a

or parole supervision; therefore, agencies have leverage o
COPS Innovations 

The working group became responsible for managing the 

people with the goal of reducing their violent behavior an

overall violence in Newark. The overarching goal was to 

others by example through the pulling-levers-strategy.

28 I

this caseload were notified that if they engage in violent 

caught with a gun during their time on probation or paro

potential resource will be brought to bear, including mor

vertical prosecution (and potential federal prosecution), a

penalties. At the same time, if they needed services (e.g., 

substance abuse counseling, mental health services, faith 

could receive them. Clients (as those on the caseload cam

also had to attend accountability sessions to establish wh

well as partners in GNSCI, were meeting their obligation

important for the GNSCI group to follow through both sa

social services to gain and sustain credibility. 

Since the inception of GNSCI, of the 353 individuals in t

group, only 7.9% have been arrested for violence and on

been victims of violence. In addition, from 2001 to 2002

rate dropped by 28% (the adjoining towns of East Orang

had a 20% and 14% increase, respectively). By 2003, ho

homicide in Newark jumped by 28%. The working group 

speculate about why this may be the case and one consis

emerged: gangs. 

Gangs in Newark 

During the GNSCI working group meetings of 2003, a n

started to bubble to the surface. Community members an

enforcement were becoming increasingly concerned abou

perceived as a growing gang problem. They believed tha

rate and changing nature of homicide in Newark was cau

the local gangs. Recent analyses in GNSCI had revealed 

trend: while homicides were increasing in Newark, shoot

decreasing. In the previous years of data analysis, homic

shootings had a positive relationship with one another. T

in the working group was that homicides were becoming 

victims were intended and sought out. While partners we

whether this reflected the actions of rival gangs or wheth

simply the fact that gang members were involved, they n

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perceived a connection. In short, the community believed 

posed a problem and the stakeholders saw GNSCI as a le

within which to voice their concerns and have them addr

problem analysis forum, therefore, served as the context 

consider another issue. This is an important point to stres

partnerships and collaboration already in existence as a r

GNSCI, there would have been no forum for these variou

agencies to discuss their concerns collectively. 

When pressed about their concerns, the stakeholders rela

that local street gangs were involved in a plethora of crim

from auto theft to drug sales to homicide to general comm

harassment. Given the broad nature of the problem, the n

gang landscape had to be defined, rather than defining on

a particular crime. In addition, the community and GNSC

believed that this was part of a larger regional problem: t

Newark had connections beyond the city's borders and to 

adjacent municipalities would be ill-advised. This projec

actually would expand geographically beyond its parent p

GNSCI. Accordingly, the North Jersey Gang Task Force 

2003 and began a methodical process of defining the gan

various cities and towns in northern New Jersey. 

In a fashion similar to the Boston Gun Project, this proje

experiential knowledge of personnel from various crimin

agencies (law enforcement, prosecution, probation, parol

commission, department of corrections, and so forth) wh

a general, evolving picture of the gang landscape. The in

included different agencies as an attempt to get as compl

the gang problem as possible from the law enforcement v

While many agencies have their own gang data, relying o

files is problematic on several levels. First, university res

have easy legal access to such files. Second, many agenc

different definitions and rules for their respective databas

makes comparison and consolidation very difficult. Final

databases are not always updated or purged with regulari

goal of the analysis is to construct a picture of the curren

landscape, the Boston Gun Project was used as a model a

criminal justice personnel who have an expertise about th

problem were data sources. 
COPS Innovations 

Again, the centrality of collaboration in GNSCI emerged 

the progress of the North Jersey Gang Task Force. Street 

particularly political issue and law enforcement agencies 

strong reticence about sharing information. By 2003, the 

Department had been sharing information and collaborat

agencies through GNSCI for 4 years. The police departm

had cultivated a trust of the other stakeholders and of Ru

as an analytic and research partner. At the start of the gan

department was willing and enthusiastic about sharing in

because gangs were a problem worth solving. At the sam

department vouched to other law enforcement agencies th

partnership was worthwhile given past experience. While 

declined to be part of this project either because of denia

gang problem or because of a lack of faith in the utility o

the majority agreed to participate. They simply realized t

ignore the gang problem in their jurisdiction and were w

of a problem solving initiative that may help. 

The interview groups began to provide data on such issu

territory, the role, nature, and extent of violence and crim

recruitment and initiation rituals, the extent of female me

history, the role of families, and other topics of interest. I

researchers began to gather information on the criminal h

identified gang members. These data confirm the notion 

individuals do not specialize in particular forms of crime

engage in an array of offending behavior.

29 Given the fac

dynamic and that the project desires current data, the foc

continued to meet over the course of one year. This not o

the collection of recent data, but also for the formation o

relationships across agencies and with the researchers. 

The first analysis phase included GIS-mapping. Although 

beginning stages of the project was that gangs were perv

identifying hot spots of gang territories was an appealing 

could translate easily into intervention tactics. The sense 

there were no clear hot spots of gang territory. Gangs see

everywhere; the only area in Newark, for example, that d

14 
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gang territory was the airport. This analysis also confirm

approach was appropriate because many gang territories 

between cities. At this point, the partners asked whether t

residential hot spots and, if these emerged, perhaps that c

intervention in some manner. The analysis revealed that m

members did not reside in their respective territories, wh

with some previous research.30 Moreover, a good number 

reside in the city that contained their territory. 

Introduction to Network Analysis 

At this point in the problem analysis, it was clear that ma

not be the sole analytic tool. Trying to be innovative and 

landscape from a unique perspective, this project recogni

usefulness that network analysis played in the Boston Gu

Network analysis is a technique that focuses on analyzin

social relationships among groups or individuals. By deta

of relationships (namely rivalries) among the street gang

certain gangs nominated themselves for focus, and resear

able to anticipate the potential consequences of an interv

such as particular gangs taking advantage of others' perce

weakness. The North Jersey Gang Task Force also detaile

relationships among the gangs and sets in the various nei

under focus. Such an analysis provided insight into why 

geographic areas may experience violence caused by a co

relationship among gangs or sets and the allegiances and 

could influence the focus of an intervention or suppressio

better define the street gang landscape in Newark, the pro

step further by defining the relationships among known g

and their associates. To our knowledge, no other problem 

preceding a gang intervention has done this. Doing so pr

into law enforcement perceptions of the internal organiza

street gangs under study.

31 
COPS Innovations 

Keeping track of the associations among gang members 

easy for law enforcement when dealing with small group

tracking the relationships and associations among a crim

10 individuals is reasonable. Many street gangs are quite 

however. Recognizing the web of relationships among hu

members and seeing the overall structure of this pattern i

under such circumstances. This is especially true when th

that one person has about certain people and their associa

with another's knowledge. Combining such information t

collection and analysis offers a more complete picture of 

members are connected to each other. Not only does this 

give a sense of how organized a particular street gang is, 

provides insight into differential levels of individual entr

within a street gang. 

Information on gang organization often is integral to the 

selection of intervention tactics and programs; therefore, 

analysis struck us as a useful, cutting-edge technique. In 

fact that Rutgers University served as both neutral conve

research partner was invaluable. It is difficult for any law 

or criminal justice agency to invest the time and money n

this analysis. Partnering with a university, however, prov

to the skills and labor of graduate students and researche

Collaboration, therefore, is important not only for getting 

consistent data about the gang problem, but also for havi

who are willing and able to analyze these data. Partnersh

local universities and communities are mutually benefici

side possesses unique but underutilized expertise and res

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The interview groups provided information about the gan

known associates in a variety of categories, including wh

and commits crime together ("runs together"), who has b

incarcerated together, who is related to each other, who i

or co-defendant with whom, and other relationship dimen

these interviews, the data were coded and entered into sta

(the data were also updated after every interview). This i

built up the street gang networks, providing insight into t

of the gangs as well as into the various social positions th

occupy within the gangs. Such analysis was important be

provided knowledge about the structure of the gang in a 

different from most inquires, which tend to investigate ga

meetings, and loyalty, and it is important to the decision 

an impact on the gangs. Are the gangs organized enough 

members accountable for one member's actions (an Oper

tactic called "collective accountability")? Do certain subg

focus? Do certain people nominate themselves for focus 

social position in the gang? 

The first thing that the network analyses suggested is tha

Newark are loosely organized. This finding was generally 

the research literature and with the perceptions of the par

GNSCI. Even so, this analysis allowed the North Jersey T

partners to make this firm statement about the local gang

grounded in a problem analysis. As such, collective acco

general tactic for gangs in Newark was unlikely to be a s

jurisdiction (see a more in-depth discussion in McGloin, 

smaller, well-connected groups may be better suited to an 

focus. For example, Figure 2 illustrates cliques in the Alm

King and Queen Nation in Newark. Cliques are intensely 

groupings within the overall network and may be vulnera

collective accountability strategy. This distinction betwee

Boston gangs may be somewhat semantic. Gang definitio

location and Boston gangs may essentially be similar to t

Newark, since they were small relatively well-connected 

Without network analysis, however, these groups of well

people in Newark may have gone unnoticed since the "ov

of the gang may have clouded such groupings. 
COPS Innovations 

Figure 2. The Identified Cliques for the Almighty Latin 

Queen Nation in Newark, New Jersey 

Figure 2 also shows that there is variation of the embedd

the street gangs. In short, some people exist on the periph

gang, whereas others act as core members. At a minimum

that any strategy must recognize that there should be diff

such people. Central members are unlikely to be persuad

gang life in the same manner as tangential members, for 

Rather than randomly addressing particular gang membe

all in a similar fashion, this analysis provides the leverag

program elements individually in an effective and educat

is tied to the local gang landscape. Network analysis also 

identify people who hold structurally important positions 

gang networks. Cut points, people who are the only conn

people or groups of people, may be ideal selections for s

deterrence message or for affecting the structure and orga

18 

street gangs.33 
Street Gangs and Inte

Innovative Problem Solving with Netw

Simply having information on gang members and their a

if one chooses not to analyze it in any complex way, is h

example, Dr. Wayne Fisher, a researcher in this project, h

putting together a book of the most problematic gang me

book detailed the associates of those individuals in whom 

enforcement is most interested. Any time police question

member, this book could be consulted to determine if he 

associate and, therefore, may have important information

example, when a homicide suspect who was a gang mem

large, Newark police consulted the association data of th

reviewing the information provided by law enforcement 

Newark Police Department was able to direct its search a

suspect quickly. 

Continuing to rely on network analysis throughout the co

intervention strategy helps to ensure that tactics continue 

appropriate and useful with a dynamic problem. For exam

continuing to analyze the network of relationships will pr

on whether an intervention strategy is further disorganizi

or having the unintended consequence of increasing cohe

thereby raising the risk of more crime. At the same time, 

positions in the gang shift, or new people move into struc

important positions within the gang, interventions may h

new individuals or alter current strategies. 

This raises the important issue of sustainability, not only 

analysis but also for collaboration and partnerships. Ofte

brings stakeholders to the table, perhaps because of a dra

youth homicide or a handful of particularly attention-grab

crimes, for example. As the crisis subsides, however, it c

to maintain the sense of urgency about the problem at ha

Accordingly, partners can become distracted and the coll

data analysis subside. This can be an unintended consequ

program success or simply a product of shifting attention 

Whatever the cause, it can cease any benefit as the progr

treading and/or fails to match the problem at hand. For e

Operation Ceasefire ended in 2000 and the street gang pr

is not the same as it was at the genesis of the project.34 R

from Boston at the National Gang Executive Session II, h

William J. Bratton, Los Angeles Police Department and s

the U.S. Department of Justice Office of Community Ori

Services, reflected on this issue and agreed that applying 
COPS Innovations 

intervention framework within this city would be an ill-a

pathway. In short, an in-depth problem analysis must aga

intervention strategy, despite early success. 

Most would agree that problem analysis must precede a g

intervention. A major theme, however, at the National Ex

Session on Gangs II was the difficulty of sustaining such 

well as the resulting intervention. Two factors may impro

sustainability. First, it is important for stakeholders to ma

of urgency about the problem at hand. This is perhaps ea

done, and relies on strong, committed leadership. This le

related to the second factor. Often, dynamic individuals f

these collaborative relationships. While this is beneficial 

leadership, it can be detrimental if and when such individ

other professional responsibilities and leave the partnersh

circumstances, a problem-solving initiative and intervent

fall apart. If a project is to be sustained, the relationships 

among groups and agencies (i.e., organizational in nature

based on individuals. In such a context, the relationships 

institutionalized and, therefore, remain despite individual

GNSCI, for example, has continued despite witnessing fo

three directors of the Newark Police Department, four St

General, and three U.S. Attorneys since its inception. Thi

only because of a focus on inter-organizational, rather th

interpersonal, collaboration and partnership. 

Concluding Remarks 

While the exact nature of street gangs and the criminal p

which they are involved often are unique to location and 

commitment to engaging in a problem analysis should be 

Some debates remain within the literature about many se

gang issues, suggesting that there can be no assumptions

generalizing themes and findings often is inappropriate. A

time, law enforcement has a plethora of program types an

which to choose, but that decision must be informed by t

problem. Even if a program is a success in a particular do

not a guarantee for repeat success elsewhere, particularly 

underlying problem is different. It is wise to attend to the 

problem-oriented policing, taking the time and care to de

adequately before adopting a response strategy with an e

collaboration, especially in the sphere of street gangs.35 

20 
Street Gangs and Inte

Innovative Problem Solving with Netw

About the Author 

Jean M. McGloin is an assistant professor in the Departm

Criminology and Criminal Justice at the University of M

She received her Ph.D. from the School of Criminal Justi

University-Newark in 2004. Her research interests includ

gangs, policing and criminological theory. Her recent pub

have appeared in Criminology and Public Policy, Justice 

and Journal of Criminal Justice. 

Street Gangs and Inte

Innovative Problem Solving with Netw

References 

1 See the National Youth Gang Surveys 

http://www.iir.com/nygc/PublicationLinks.htm#Surveys 

2 Esbensen, F.A., and Winfree, L.T. (1998). Race and gender 

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3 Crane, J., Boccara, N., & Higdon, K. (2000). The dynamics 

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Miller, W.B. (2001). The growth of youth gang problems in the 

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OJJDP. (1998). 1998 National Youth Gang Survey. Washingt

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Spergel, I., Grossman, S.F., Wa, K.M., Choi, S., & Jacob, A. (19

little village gang violence reduction project: The first three yea

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4 Decker, S.H. (2001). From the streets to the prison: Underst

responding to gangs. Indianapolis, IN: National Major Gang Ta

Fleisher, M.S., & Decker, S.H. (2001). Going home, staying ho

prison gang members into the community. Corrections Manage

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5 Fagan, J. 1989. The social organization of drug use and dru

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Klein, M.W. (1996). Gangs in the United States and Europe. E

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6 Curry, G.D, Decker, S.H. & Egley, A. (2002). Gang involvem

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7 Decker, S.H., & Van Winkle, B. (1996). Life in the gang: Fam

violence. New York: Cambridge University Press. 

8 Howell, J.C. (2000). Youth gang programs and strategies. W

Department of Justice, Office of Justice Programs, Office of Juv

Delinquency Prevention. 
COPS Innovations 

24 

Klein, M.W. (1995). The American street gang. New York: Oxfo

9 Miethe, T.D., & McCorkle, R.C. (2002). Evaluating Nevada's 

and gang prosecution units. In W.L. Reed & S.H. Decker (Eds

gangs: Evaluation and research, pp. 169-196. Washington, DC

of Justice. 

10 OJJDP. (2000). Youth gang programs and strategies: OJJD

http://www.ncjrs.gov/html/ojjdp/summary_2000_8/intro.html 

11 Esbensen, F.A., Osgood, D.W., Taylor, T.J., Peterson, D, & F

How great is G.R.E.A.T.?: Results from a longitudinal, quasi-ex

Criminology and Public Policy, 1, 87-118. For more information 

www.great-online.com or call 800-726-7070. 

12 Esbensen, F.A. (2004). Evaluating G.R.E.A.T.: A school-bas

program. Washington, D.C.: National Institute of Justice. (Page

13 For more information, see: http://www.youthalive.org/caught.

14 Klein, M.W. (1995). The American street gang. New York: O

Press. 

15 Decker, S.H., & Curry, G.D. (2003). Suppression without pr

without suppression: Gang intervention in St. Louis. In S.H. De

gangs and youth violence, pp. 191-213. Belmont, CA: Wadsw

Learning. 

16 For more information, see: Braga, A.A., Kennedy, D.M., War

A.M. (2001). Problem-oriented policing, deterrence, and youth v

evaluation of Boston's Operation Ceasefire. Journal of Resear

Delinquency 38: 195-225. 

17 Braga, A.A., Kennedy, D.M., Waring, E.J. and Piehl, A.M. (20

oriented policing, deterrence, and youth violence: An evaluation 

Operation Ceasefire. Journal of Research in Crime and Delinq

225. 
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Innovative Problem Solving with Netw

18 Some cities have not exactly replicated the Boston Gun Proj

the framework is nonetheless similar. For example, the Chicag

Violence Prevention runs a CeaseFire program that essentially 

violence (which often involves violent gang members) as a pub

This comprehensive program, which has indicators of success, 

mediating conflicts and responding rapidly to shootings with an 

stakeholders and services. 

19 Goldstein, H. (1979). Improving policing: A problem oriente

Crime and Delinquency, 25: 236-258. 

20 Cordner, G., & Biebel, E.P. (2005). Problem-oriented policin

Criminology and Public Policy, 4(2), 155-180. (Page 159) 

21 Braga, A.A., McDevitt, J., & Pierce, G.L. (2005). Understand

preventing gang violence: Problem analysis and response deve

Lowell, Massachusetts. Forthcoming in Police Quarterly. 

22 Police Foundation. (1981). The Newark foot patrol experime

DC: Police Foundation. 

23 For more discussion of the important role of a neutral conve

Hartmann, F.X. (2002). Safety first: Partnership, the powerful 

and problem solving. In G.S. Katzman (Ed.), Securing our child

New approaches to juvenile justice and youth violence. Washi

Brookings Institution Press. 

24 Lane, J., Turner, S., & Flores, C. (2004). Researchers-pract

collaboration in community corrections: Overcoming hurdles for 

partnerships. Criminal Justice Review, 29(1), 97-114. 

25 Decker, S.H., & Rosenfeld, R. (Forthcoming). Reducing gun 

Louis consent-to-search program, Research in brief. Washingto

Institute of Justice. 

26 Braga, A.A., & Winship, C. (In press). Partnership, Accounta

Innovation: Clarifying Boston's Experience with Pulling Levers. 

& A.A. Braga (Eds.), Police Innovation: Contrasting Perspective

Cambridge University Press. 
COPS Innovations 

26 

27 PEW Partnership for Civic Change. (2004). In it for the long 

Community partnerships making a difference. Charlottesville, V

Partnership for Civic Change. 

28 Kennedy, D.M. (1998). Pulling levers: Getting deterrence ri

Institute of Justice Journal, No. 236. 

29 Klein, M.W. (1995). The American street gang. New York: O

Press. 

30 Meeker, J.W., Parsons, K.J.B., & Vila, B.J. (2002). Developi

regional gang incident tracking system. In W.L. Reed & S.H. D

Responding to gangs: Evaluation and research, pp. 289-329. W

National Institute of Justice. 

31 For a more in-depth discussion of the data and the analyses

J.M. (2004). Associations among criminal gang members as a 

organization and as a predictor of criminal behavior: The gang 

Newark, New Jersey. Ann Arbor, MI: UMI. 

32 PEW Partnership for Civic Change. (2003). University and 

research partnerships: A new approach. Charlottesville, VA: P

for Civic Change. 

33 McGloin, J.M. (2005). Policy and intervention consideration

analysis of street gangs. Criminology and Public Policy, 4(3), 6

34 McDevitt, J., Braga, A.A., Nurge, D., & Buerger, M. (2003). 

violence prevention program: A comprehensive community-wid

S.H. Decker (Ed.), Policing gangs and youth violence, pp. 53-7

Wadsworth Thomson Learning. 

35 The National Gang Center is an additional resource when de

problem www.nationalgangcenter.org 

www.co

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