U.S. Department of Justice 

Office of Justice Programs 

Office of Juvenile Justice and Delinquency Prevention 

National Evaluation 

of the Title V Community 

Prevention Grants Program 

OJJDP Report 
Office of Justice Programs 

810 Seventh Street NW. 

Washington, DC 20531 

Alberto R. Gonzales 

Attorney General 

Regina B. Schofield 

Assistant Attorney General 

J. Robert Flores 

Administrator 


Office of Juvenile Justice and Delinquency Prevention 


Office of Justice Programs 

Partnerships for Safer Communities 

www.ojp.usdoj.gov 

Office of Juvenile Justice and Delinquency Prevention 

www.ojp.usdoj.gov/ojjdp 

This report was prepared by Caliber Associates, Inc., and was supported by cooperative agreement OJP–99–C–007 

from the Office of Juvenile Justice and Delinquency Prevention, Office of Justice Programs, U.S. Department of 

Justice. 

Points of view or opinions expressed in this document are those of the authors and do not necessarily represent the 

official positions or policies of OJJDP or the U.S. Department of Justice. 

The Office of Juvenile Justice and Delinquency Prevention is a component of the Office of Justice 

Programs, which also includes the Bureau of Justice Assistance, the Bureau of Justice Statistics, the 

National Institute of Justice, and the Office for Victims of Crime. 
National Evaluation 

of the Title V Community 

Prevention Grants Program 

Caliber Associates, Inc. 

Report 

August 2006 

Office of Juvenile Justice and Delinquency Prevention 


NCJ 212214 

Foreword 


Recognizing that community-based programs and local involvement are critical components of 

delinquency prevention efforts, the Office of Juvenile Justice and Delinquency Prevention (OJJDP) 

provides communities with funding and a guiding framework for developing and implementing 

comprehensive juvenile delinquency prevention plans. For more than a decade, OJJDP’s Title V 

Community Prevention Grants Program has helped communities prevent delinquency and improve the 

lives of youth and their families. 

The Community Prevention Grants Program features a risk- and protection-focused approach, 

communitywide interventions, and local flexibility—all of which make Title V a distinctive initiative, 

capable of establishing communities with strong and healthy families and fewer youth entering the 

juvenile justice system. To date, more than 1,500 communities have received Title V grants to launch 

efforts to reduce the risk factors associated with juvenile delinquency and enhance the protective factors 

that support healthy personal and social development. 

Since 1998, OJJDP has conducted a national evaluation of the Community Prevention Grants Program 

to examine the viability and effectiveness of the Title V delinquency prevention model. 

The national evaluation described in this Report provides a framework for understanding both the 

process and progress of the Title V Program. As one of the nation’s first comprehensive, communitybased prevention initiatives, Title V offers a unique opportunity for OJJDP and others in the field of 

delinquency prevention to observe communities nationwide as they attempt to translate theory into 

practice. Findings from the national evaluation help OJJDP refine the Title V model and add to the 

growing body of knowledge on effective delinquency prevention strategies. 

With each passing year, the Title V Community Prevention Grants Program continues to evolve. The 

national evaluation plays an important role in guiding that evolution. It also reflects OJJDP’s ongoing 

commitment to using evaluation feedback in planning how to best help communities develop and 

implement initiatives that prevent delinquency. 

Citizens across America have been working with the Title V Community Prevention Grants Program to 

prevent and reduce delinquency within their communities. OJJDP looks forward to building on the 

Program’s momentum and continuing to prepare the nation’s youth for healthy and productive futures. 

J. Robert Flores 

Administrator 

Office of Juvenile Justice and Delinquency Prevention 

National Evaluation of the Title V Community Prevention Grants Program—Foreword i 
Executive Summary 


Congress established Incentive Grants for Local Delinquency Prevention Programs in Subchapter V of 

its 1992 reauthorization of the Juvenile Justice and Delinquency Prevention Act of 1974. The Title V 

Community Prevention Grants Program, as it is now known,1 provides communities with funding and a 

guiding framework for developing and implementing comprehensive juvenile delinquency prevention 

plans. Title V supports the development and implementation of risk- and protection-focused prevention 

strategies that meet the unique circumstances and risk conditions of local communities nationwide. 

As outlined in the Program Guideline (Federal Register, Vol. 59, No. 146), the Community Prevention 

Grants Program provides funding to participating states and territories, which then make subgrants to 

qualified units of local government. To help communities plan and implement risk- and protectionfocused prevention programs, grant funds are supplemented with extensive training and technical 

assistance. 

Since 1998, the Office of Juvenile Justice and Delinquency Prevention, through a contract with Caliber 

Associates, has conducted a long-term national evaluation of the Community Prevention Grants 

Program in six participating states. Based on input from national experts in designing and conducting 

evaluations of comprehensive program initiatives, the evaluation tests the key assumptions on which the 

program model rests. 

This report presents the experiences of 11 communities that implemented the basic principles of the 

Community Prevention Grants Program. Specifically, the report examines how the Program affected 

these communities, including the benefits they received and the challenges they encountered. The report 

also analyzes efforts by the national evaluation team to design and implement a national assessment that 

balances the information needs of the federal government with the evaluation capacity of local Title V 

communities. 

This evaluation report is divided into eight chapters. Chapter 1 introduces the Community Prevention 

Grants Program model and the national evaluation, including the evaluation’s methodology and 

challenges, the sample of participating states and communities, and evaluation activities, such as data 

collection. Chapters 2 through 7 present individual case studies, organized by state and community. The 

report concludes with a chapter on lessons learned and recommendations for evaluations of initiatives 

similar to the Community Prevention Grants Program. 

 In this Report, the Title V Community Prevention Grants Program is referred to as “the Community Prevention Grants 

Program,” “Title V,” and “the Program.” 

National Evaluation of the Title V Community Prevention Grants Program—Executive Summary ii 

1
Table of Contents 


Foreword..................................................................................................................................................... i 


Executive Summary.................................................................................................................................. ii 


Chapter 1: Introduction ............................................................................................................................1 


Community Prevention Grants Program Model ....................................................................................1


 Underlying Principles .....................................................................................................................2 


 Implementation ................................................................................................................................3 


 Training and Technical Assistance ..................................................................................................5 


National Evaluation of the Community Prevention Grants Program ....................................................9 


 National Evaluation Design ...........................................................................................................10 


 Initial Design..................................................................................................................................11 


 Site Selection .................................................................................................................................13 


 Modified Evaluation Design..........................................................................................................15 


 Selection of Case Study Communities...........................................................................................18 


Implementing the National Evaluation ................................................................................................19 


 Data Collection ..............................................................................................................................23 


 Site Visits.......................................................................................................................................24 


 Submission of Quarterly Data........................................................................................................24 


Conclusion ...........................................................................................................................................25 


Chapter 2: Hawaii....................................................................................................................................27 


State Support for Title V......................................................................................................................27 


 Hawaii’s Granting Process.............................................................................................................27 


 Training and Technical Assistance ................................................................................................28 


Evaluation ......................................................................................................................................28 


 Other State Factors.........................................................................................................................28 


 Interpretation..................................................................................................................................29 


 Summary........................................................................................................................................30 


 Honolulu (Kaneohe).............................................................................................................................31 


 Brief Community Description........................................................................................................31 


Title V in Kaneohe.........................................................................................................................31 


Community Mobilization and Collaboration.................................................................................32 


Initial Assessment and Planning ....................................................................................................35 


Implementation of Prevention Strategies.......................................................................................38 


 Monitoring and Evaluation ............................................................................................................43 


 Institutionalization .........................................................................................................................45 


 Interpretation..................................................................................................................................47 


 Summary........................................................................................................................................48 


Title V in Hawaii: Concluding Remarks .............................................................................................48 


Chapter 3: Michigan................................................................................................................................49 


State Support for Title V......................................................................................................................49 


 Michigan’s Granting Process.........................................................................................................49 


 Training and Technical Assistance ................................................................................................50 


Evaluation ......................................................................................................................................50 


 Other State Factors.........................................................................................................................51 


National Evaluation of the Title V Community Prevention Grants Program—Table of Contents iii 
 Interpretation..................................................................................................................................51 


 Summary........................................................................................................................................52 


Holland/West Ottawa County..............................................................................................................52 


 Brief Community Description........................................................................................................53 


Title V in Holland/West Ottawa ....................................................................................................53 


Community Mobilization and Collaboration.................................................................................55 


Initial Assessment and Planning ....................................................................................................57 


Implementation of Prevention Strategies.......................................................................................59 


 Monitoring and Evaluation ............................................................................................................66 


 Institutionalization .........................................................................................................................69 


 Interpretation..................................................................................................................................71 


 Summary........................................................................................................................................72 


Novi......................................................................................................................................................72 


 Brief Community Description........................................................................................................73 


Title V in Novi...............................................................................................................................73 


Community Mobilization and Collaboration.................................................................................74 


Initial Assessment and Planning ....................................................................................................76 


Implementation of Prevention Strategies.......................................................................................78 


 Monitoring and Evaluation ............................................................................................................82 


 Institutionalization .........................................................................................................................83 


 Interpretation..................................................................................................................................84 


 Summary........................................................................................................................................85 


Title V in Michigan: Concluding Remarks..........................................................................................85 


Chapter 4: Nebraska................................................................................................................................86 


State Support for Title V......................................................................................................................86 


 Nebraska’s Granting Process .........................................................................................................86 


 Training and Technical Assistance ................................................................................................88 


Evaluation ......................................................................................................................................88 


 Other State Factors.........................................................................................................................89 


 Interpretation..................................................................................................................................89 


 Summary........................................................................................................................................90 


Madison County (Norfolk) ..................................................................................................................91 


 Brief Community Description........................................................................................................91 


Title V in Norfolk ..........................................................................................................................91 


Community Mobilization and Collaboration.................................................................................92 


Initial Assessment and Planning ....................................................................................................95 


Implementation of Prevention Strategies.......................................................................................96 


 Monitoring and Evaluation ............................................................................................................99 


 Institutionalization .........................................................................................................................99 


 Interpretation................................................................................................................................100 


 Summary......................................................................................................................................100 


Valentine ............................................................................................................................................101 


 Brief Community Description......................................................................................................101 


Title V in Valentine .....................................................................................................................102 


 Community Mobilization and Collaboration...............................................................................103 


Initial Assessment and Planning ..................................................................................................104 


National Evaluation of the Title V Community Prevention Grants Program—Table of Contents iv
Implementation of Prevention Strategies.....................................................................................106 


 Monitoring and Evaluation ..........................................................................................................108 


 Institutionalization .......................................................................................................................108 


 Interpretation................................................................................................................................108 


 Summary......................................................................................................................................109 


Title V in Nebraska: Concluding Remarks........................................................................................110 


Chapter 5: Pennsylvania .......................................................................................................................111 


State Support for Title V....................................................................................................................111 


 Pennsylvania’s Granting Process.................................................................................................112 


 Training and Technical Assistance ..............................................................................................113 


Evaluation ....................................................................................................................................113 


 Other State Factors.......................................................................................................................114 


 Interpretation................................................................................................................................114 


 Summary......................................................................................................................................115 


Fayette County (Uniontown) .............................................................................................................115 


 Brief Community Description......................................................................................................116 


Title V in Fayette County ............................................................................................................116 


 Community Mobilization and Collaboration...............................................................................117 


Initial Assessment and Planning ..................................................................................................120 


Implementation of Prevention Strategies.....................................................................................123 


 Monitoring and Evaluation ..........................................................................................................127 


 Institutionalization .......................................................................................................................128 


 Interpretation................................................................................................................................130 


 Summary......................................................................................................................................131 


Northampton County (Easton)...........................................................................................................132 


 Brief Community Description......................................................................................................132 


Title V in Northampton County...................................................................................................132 


 Community Mobilization and Collaboration...............................................................................134 


Initial Assessment and Planning ..................................................................................................135 


Implementation of Prevention Efforts .........................................................................................138 


 Monitoring and Evaluation ..........................................................................................................142 


 Institutionalization .......................................................................................................................146 


 Interpretation................................................................................................................................148 


 Summary......................................................................................................................................150 


Title V in Pennsylvania: Concluding Remarks..................................................................................151 


Chapter 6: Vermont...............................................................................................................................152 


State Support for Title V....................................................................................................................152 


 Vermont’s Granting Process........................................................................................................152 


 Training and Technical Assistance ..............................................................................................153 


Evaluation ....................................................................................................................................153 


 Other State Factors.......................................................................................................................155 


 Interpretation................................................................................................................................156 


 Summary......................................................................................................................................158 


Middlebury-Bristol: Addison Northeast and Central Communities That Care .................................159 


 Brief Community Description......................................................................................................159 


Title V in Middlebury-Bristol......................................................................................................159 


National Evaluation of the Title V Community Prevention Grants Program—Table of Contents v 
 Community Mobilization and Collaboration...............................................................................161 


Initial Assessment and Planning ..................................................................................................162 


Implementation of Prevention Strategies.....................................................................................165 


 Monitoring and Evaluation ..........................................................................................................168 


 Institutionalization .......................................................................................................................170 


 Interpretation................................................................................................................................171 


 Summary......................................................................................................................................172 


The Town of Windsor........................................................................................................................172 


 Brief Community Description......................................................................................................173 


Title V in Windsor .......................................................................................................................173 


 Community Mobilization and Collaboration...............................................................................175 


Initial Assessment and Planning ..................................................................................................178 


Implementation of Prevention Strategies.....................................................................................180 


 Monitoring and Evaluation ..........................................................................................................183 


 Institutionalization .......................................................................................................................184 


 Interpretation................................................................................................................................184 


 Summary......................................................................................................................................186 


Title V in Vermont: Concluding Remarks.........................................................................................186 


Chapter 7: Virginia................................................................................................................................187 


State Support for Title V....................................................................................................................187 


 Virginia’s Granting Process.........................................................................................................188 


 Training and Technical Assistance ..............................................................................................189 


Evaluation ....................................................................................................................................189 


 Other State Factors.......................................................................................................................189 


 Interpretation................................................................................................................................190 


 Summary......................................................................................................................................191 


 Hanover County.................................................................................................................................191 


 Brief Community Description......................................................................................................192 


Title V in Hanover County ..........................................................................................................192 


 Community Mobilization and Collaboration...............................................................................193 


Initial Assessment and Planning ..................................................................................................196 


Implementation of Prevention Strategies.....................................................................................199 


 Monitoring and Evaluation ..........................................................................................................202 


 Institutionalization .......................................................................................................................206 


 Interpretation................................................................................................................................207 


 Summary......................................................................................................................................208 


 Waynesboro/Staunton........................................................................................................................208 


 Brief Community Description......................................................................................................209 


Title V in Waynesboro/Staunton .................................................................................................209 


 Community Mobilization and Collaboration...............................................................................210 


Initial Assessment and Planning ..................................................................................................213 


Implementation of Prevention Strategies.....................................................................................215 


 Monitoring and Evaluation ..........................................................................................................218 


 Institutionalization .......................................................................................................................222 


 Interpretation................................................................................................................................223 


 Summary......................................................................................................................................226 


National Evaluation of the Title V Community Prevention Grants Program—Table of Contents vi
Title V in Virginia: Concluding Remarks..........................................................................................227 


Chapter 8: Lessons Learned .................................................................................................................229 


 Program-Related Issues .....................................................................................................................229 


Title V Means Different Things to Different Communities ........................................................230 


The Role That Scope Plays in Success ........................................................................................231 


Understanding and Implementing the Title V Model..................................................................231 


 Program-Related Lessons Learned ....................................................................................................232 


 Broadening the Definition of “Success” ......................................................................................232 


Encouraging Communities To Start Small ..................................................................................233 


 The Importance of Training and Technical Assistance ...............................................................233 


 Evaluation Issues ...............................................................................................................................234 


 Program-Level Issues...................................................................................................................234 


 State-Level Issues ........................................................................................................................235 


 Community-Level Factors ...........................................................................................................236 


 Training-Related Factors .............................................................................................................236 


Evaluation of Lessons Learned..........................................................................................................237 


Emphasizing Program Evaluation and Risk-Factor Tracking .....................................................237 


Building State-Level Evaluation Capacity To Support Local-Level Evaluation.........................237 


State Monitoring To Encourage Local Evaluation Efforts ..........................................................238 


 Mandating and Funding Evaluations ...........................................................................................238 


Requiring the Use of Evidence-Based Programs.........................................................................239 


OJJDP’S Response to Emerging Issues.............................................................................................239 


Conclusion .........................................................................................................................................240 


 Reference ...........................................................................................................................................241 


National Evaluation of the Title V Community Prevention Grants Program—Table of Contents vii