Community Policing Exchange, January/February 1996. Theme: Youth Initiatives Article One Community Policing: America's Best Chance to End Youth Violence By Tim Johnson In America, the relationship between police and youths can be described on a continuum of positive to very negative even deadly. Some common problems between police and youths have been a lack of trust, little or no contact between line officers and youths except in negative contexts, high levels of anger and emotions, and racial and cultural differences. There is almost a natural adversial relationship between police, who must control behaviors, and youths, who are anxious to experience new behaviors. How can police managers and individual police officers improve police/youth relationships? Youth-focused community policing is one way police departments can increase positive contact and confidence levels between themselves and youths. It also provides an opportunity for youths and other community leaders to have a voice in setting local priorities and improving the quality of life in their neighborhoods. Youth-focused community policing addresses crime reduction, crime prevention and problem solving. To overcome the existing barriers, police departments must identify youths and community leaders to become involved with the department. Officers need to be educated in the methods, purposes and utility of youth-focused community policing. Many of the materials needed to help line staff better understand, appreciate and institute youth-focused community policing are available at no cost from the U. S. Department of Justice. Departmens can obtain packages that are suitable for short-term training, roll-call training and development of departmental policies and procedures. Other resource issues to consider are Who replaces a patrol officer involved in a youth-focused community policing activity ? Can and should youth-focused activities be redefined as routine patrol work? Who pays for training for youths, community leaders, and officers? What staffing changes might be necessary? Will the local union object to "extra" duties? How does a police department get started with youth-focused community policing? The U. S. Department of Justice, Community Relations Service (CRS), along with several police departments, youths and other individuals, has developed the following definition: The ideal relationship between police and youths is a positive partnership that includes police, youths, schools, community and business leaders, clergy and the media, aimed at both preventing and resolving problems of crime and disorder based on cooperation, collaboration and mutual respect. Such a relationship can be established if the police, community and youths work together. Police leaders in communities such as New Haven, Conn.; Seattle, Wash.; Fort Myers, Fla.; and Somerville, Mass., developed a list of actions departments can use to address tensions between officers and youths. These actions include: reviewing and revising departmental policies and procedures as they relate to police/youth relationships; selecting and recruiting minority employees, and residents from neighborhoods being patrolled; taking steps to ensure that candidates are psychologically suited to handle the job; training officers in areas such as cultural awareness, conflict resolution, communication and contact (people) skills; and coordinating leadership to design ongoing community programs. A youth-focused community policing effort can be started by bringing together youth leaders, community leaders and line officers in a conference or symposium aimed at identifying issues and problems police and youths face. The police department can facilitate the symposium or work in concert with community groups to manage the symposium. Police administrators need to move from talking about youth-focused community policing to initiating it, or expanding existing efforts. Tim Johnson is a program specialist with the U. S. Department of Justice, Community Relations Service. For more information on this program or other cost-free technical assistance call (301) 492-5969, ext 136. Article Two Hartford Embraces Community Policing to Counteract Gang Activity Hartford, Conn. Not so long ago Hartford was a city afflicted by the likes of the Los Solidos, the Twenty Love and the Latin Kings street gangs who push crack and heroin and recruit young kids playing in their yards. Several years ago, the Hartford Police Department began laying the groundwork of a community policing philosophy. And then, in early 1993, a gang war broke out in Hartford. Without warning, the city was gripped with fear that spread like wildfire through this diverse community of approximately 140,000. City officials, police and citizens worked side-by-side to find solutions to problems that they knew could not be resolved by a single response, nor handled by a single agency. Hartford thrust community policing to the forefront, recognizing that enforcement measures, while critical to the restoration of the community's sense of security and well-being, does little to ensure long-term stability. The department knew that to be successful, their efforts needed support from other government and community-based organizations. The department was intent on doing more than just handling the approximately 300,000 calls for service received yearly. The leadership was committed to improving the residents' quality of life by targeting the social ills paralyzing Hartford's neighborhoods. It was agreed that the place to start was with the city's youths. Recognizing Youths as Our Most Valuable Resource One summer, the leader of a notorious street gang was seated on a milk crate in Frog Hollow, a neighborhood that had been ravaged by gangs and shootings. The gang leader was holding court with a group of about thirty 10- to 12-year-old kids. This guy had their full attention and proceeded to deliver a convincing sales pitch about the benefits of gang membership. Sergeant Marc Rubera, an energetic and innovative Hartford police officer, was standing nearby and overheard the recruiting session. Rubera approached the group and immediately engaged the gang leader in a conversation. Rubera, through his dialogue with the leader, made the kids aware of the real dangers of gang life. Rubera made such a positive impression that day that many of the kids later joined a police-sponsored program that provided them with a way to positively express themselves. This episode was a turning point for Rubera and for numerous gang members. Rubera convinced top police officials to sponsor a program that he affectionately named Hoods in the Woods. With help from other officers, he took a group of inner-city kids on a two-week camping excursion. The kids enjoyed fresh air, challenging work, and structured and educational activities, but most important, they spent quality time with police officers who cared. Many of these kids returned to the city with a new attitude and a new direction in life. Today, Marc Rubera, now a lieutenant, and Officer Michael Matthews continue to be positive role models for youths. In addition to their leadership with Hoods in the Woods, the two also run a successful Police Athletic League that serves over 400 youths citywide. It is impossible to mention by name all of the Hartford officers who have unselfishly given of their time to the city's youths. The department's community policing efforts, however, rely not only on the talents and creativity of its officers, but also of its citizens. The quality-of- life issues are being addressed in Hartford, in partnership with the community. Instrumental to Hartford's accomplishments is Chief Joseph Croughwell. Progress to date is largely due to his commitment to community policing and the youths and families in Hartford. Chief Croughwell orchestrated a well-devised plan of enforcement, and with the cooperation of state and federal law enforcement agencies, and the community, the department has successfully identified, apprehended and convicted several key individuals responsible for creating an environment of fear in this city. To no surprise, gang activity still exists in Hartford. But progress is being made, and gang activity is decreasing. The Hartford Police Department is making arrests that often yield firearms and narcotics. The department's mission is to enhance the quality of life in Hartford by developing partnerships with the community and other government entities to promote preservation of life and property, maintain peaceful public order, reduce fear and provide a safe environment by enforcing the law while respecting human dignity. This sense of responsibility and commitment to Hartford's citizens is exemplified in the accomplishments of innovative police officers throughout this department and their commitment to identifying, accessing and mobilizing those community-based resources that can best serve the needs of this city. By Captain Deborah Hawes-Brown For more information write to Captain Deborah Hawes-Brown, Commander, Community Response Division, Hartford Police Department, Hartford, CT 06120. Phone: (203) 527-7300 ext. 5512. Frankie Echevarria: The Second Time Around I met Frankie Echevarria when he was 11-years-old. At that time, he was already tracking a path of self-destruction. His role models were gang members, drug dealers and ignorant street philosophers. He was selling marijuana, riding in stolen cars and beating up outsiders who ventured into his neighborhood. He was in an alternative education program, having been thrown out of school for fighting. What has happened to Frankie over the last four years is the stuff miracles are made of. He left all the negative influences behind, joined PAL, worked his way back into school and won the U.S. Junior Olympic Boxing Championship. Frankie is now a junior in high school and is getting As and Bs in all of his classes. When Frankie graduates next year, he'll be going to college. He won a scholarship for writing a paper about his life and how he was saved by two police officers. Frankie spends his extra time coaching sports, playing basketball, building furniture, boxing and participating in a variety of other activities run by the Hartford Police Athletic League. Frankie is a role model in his neighborhood. Many young people who know Frankie want to be like him. This young man, once destined to be a gang leader, is now the hope of all who wish good things for their lives. It takes enormous courage to avoid all the temptations of negative peer pressure. Frankie met every challenge and overcame every obstacle. He has not only changed his own life but the lives of many young people who, without his example and support, would have ended up in the cemetery of wasted talent. By Lieutenant Marc Rubera For more information write to Lieutenant Marc Rubera, Hartford Police Department, Hartford, CT 06120. Phone: (203) 527-7300. Article Three Giving Voice Hold Them Accountable says Police Captain Captain Tubbs has served the Beloit Police Department since 1974 and currently heads the Community Relations Division. Tubbs has been recognized on local, state and national levels as an active force against gang and school violence. His dedication to young people and his community has led to the development of numerous youth- and community-improvement programs. Q1. Statistically we know that once a youth commits a crime and enters the juvenile justice system, the likelihood of that child staying in the system increases dramatically. In your view, what is the most effective use of police personnel to prevent kids from ever entering the system and consequently to curb the rising rate of violent crimes being committed by youths? A1. I think the most effective way police officers can keep kids from entering the system is by becoming active, positive role models and mentors in their lives. Law enforcement professionals, outside of parents, educators and professional athletes, are in the best position to do this. We, along with other authority figures, can make an impact on children by helping to correct their inappropriate behavior and by making their parents aware of their behavioral problems. One thing is sure, there are a multitude of parents who blame our schools and educators for their children's failures. That has to stop. For many kids, school is the only place they receive positive or negative attention, not to mention a caring environment and a hot meal. Part of the problem is fathers who overdose on all-day or night sports events, or think that social nights out are more important than spending quality time with their kids. I'm not saying that every time a kid gets in trouble it's because the parents aren't doing their jobs. There are a lot of parents who try to be positive role models for their children but have had their efforts undermined by major obstacles. We know that it is extremely difficult to change or redirect the lives of 13- or 14-year- olds that have entered the criminal justice system. That's why corrective action has to be done at a young age through tough love, progressive discipline, and consistent behavior. Officers can also help keep youths out of the system by continuing to improve police services in their communities. If we [officers] become more adept at dealing with the challenges of marital discords, breakdowns in the families, drugs and gangs, (which we can with the proper training) this will have a direct impact on the children. Q2. Many police departments are frustrated with what they perceive as a broken juvenile justice system and have turned to alternative methods such as accountability boards and citizen hearings to handle first-time juvenile offenders. As a police officer, what do you think must happen to fix our ailing juvenile justice system? A2. We must stop talking about holding parents and children responsible for their actions and truly make them accountable. We will never improve the juvenile justice system if we don't abide by this very basic tenet. The system has to be amended so that it deals with the crime that a child commits, rather than focusing on peripheral information like his or her age at the time of the crime. For instance, if a seven-year-old commits a murder, then that child, and his or her parents, must be held responsible for the crime. This doesn't mean that you lock the child and parents in prison for life, but it does mean that appropriate action is taken. The system must require that treatment, sanctions, and follow-up care be administered to prevent that child from recommitting. The prevention has to be done early, as the chances of steering a kid straight later on becomes extremely difficult (though not impossible). In my opinion, the lack of morals and values taught, and attention given in some homes is what leads to criminal activity. I'm also convinced that building more prisons; increasing boot camps, metal detectors, and video cameras; and lengthening suspensions, expulsions and jail time isn't the answer to our problems. So, if family irresponsibility is a major contributor to the breakdown of the juvenile justice system, then what is the solution? The broad answer is that there has to be a massive collaboration between parents, neighbors, churches and state agencies to work together to keep America's kids straight. We also have to remember that not every effort will be successful, and it's counterproductive to blame one another for failures. Increased youth violence didn't happen overnight, and it definitely won't be fixed overnight. But we can make a difference, and the only way I see to do that is through a total commitment from each community, and that commitment needs to be made today. For more information contact Captain Charles A. Tubbs, Beloit Police Department, 100 State Street, Beloit, WI 53511. Phone: (608) 364-6843. Fax: (608) 364-6608. Article Four Salinas Uses Youth Handgun Violence Initiative to Reduce Gun-Related Crimes Salinas, Calif. Salinas is the largest city on the central coast of California. It's diverse population is 50 percent Hispanic. "Drive-by Shooting Injures 10 Attending Wedding Party," reported an Oct. 7, 1995, headline in a Salinas newspaper. In Salinas, drive-by shootings have become a common form of gang confrontation and retaliation. The speed of the assault depersonalizes the act and removes the intimacy that can prevent a face-to-face shooting. Salinas is overwhelmed with gang violence. Trying to keep pace with the activity has placed an even heavier burden on the city's already stretched resources. In 1995, the Salinas Police Department identified 14 criminal street gangs operating within city limits. The current number of serious gang members is estimated at 400 a number in danger of rising, considering that 750 Salinas youths are considered to be at risk of joining a gang. In the last 10 years, Salinas experienced a 200 percent increase in its homicides. In 1994, there were a record 24 homicides in this city of 122,700 residents. So far this year, gang members have been responsible for 75 percent of all homicides and have put the city on track to match or surpass last year's record. Statistics indicate that the use of firearms by young gang members has contributed to the rising number of homicides. On a recent evening, an 18-year-old gang member was found with six firearms, including a Russian SKS assault rifle, an Uzi submachine gun and an M-11 machine gun. The confiscated firearms were in excellent condition, were not registered or recorded in the state firearm system, and would have been extremely difficult to trace. In July 1995, a study of recovered stolen firearms revealed that 73 percent of the weapons were found in the possession of individuals under the age of 25. The study also showed that, in 92 percent of the cases where a firearm was used during a violent crime, the individual in possession of the weapon was again under the age of 25. One case study in Salinas showed that a known hangout for gang members was shot at six times during a two-month period. The residents of the house said they quit calling 911 because they didn't like the attention generated by police presence. The house continued to be hit by gunfire. Intelligence reports indicated that residents of the house often returned fire, striking neighboring homes. In several instances, investigating officers were unable to locate fresh evidence due to the extensive bullet damage sustained on prior occasions. During one episode, a fleeing drive-by-shooting suspect shot an occupied and clearly marked Salinas Police Department patrol car. Police records list this house as the site of several shootings causing injury and a double homicide. Over the last few years, the Salinas Police Department has worked diligently to employ concepts of community policing throughout the city. The department instituted a DARE program, augmented the number of school resource officers, and helped form the Violent Injury Prevention Program (VIPP), the Salinas Police Athletics League, Peacebuilders and the Title V Delinquency Prevention program. The department also formed a gang task force. Innovative problem solving has been an integral part of this process and has helped the department respond to increased violence using both prevention and enforcement. Earlier this year, the Salinas Police Department received a grant from the U.S. Department of Justice, Office of Community Oriented Policing Services (OCOPS), to begin a Youth Handgun Violence Initiative. This one-year grant targets youth handgun violence through enforcement efforts using a community policing approach. Relying on the recently released results of the Kansas City Gun Experiment (National Institute of Justice, January 1995), the initiative focuses on removing firearms from the hands of criminals, specifically gang members, by using a proactive street-level approach. The department added seven officers to the Violence Suppression Unit (formerly the gang task force) to assist in reducing youth handgun violence. In addition, the department plans to dramatically increase its tracking capabilities by using a Geographic Information System (GIS). This state-of-the-art computer system will allow officers to track and analyze gang activity so that they can deploy resources most effectively. Furthermore, a media campaign will inform local residents of the problems associated with handgun violence. A recent survey of Salinas citizens suggests that the fear of crime, and gangs in particular, is a strong concern among residents. The stepped-up enforcement campaign directed toward criminal street gangs and youth handgun violence will foster a greater sense of safety, and provide continued police department support for a multitude of community-based programs, all working to reduce violence in Salinas. By Sergeant Tracey Molfino For more information write to Sergeant Tracey Molfino, Salinas Police Department, 222 Lincoln Ave., Salinas, CA 93901. Phone: (408) 758-7348. Fax: (408) 758-7405. Article Five Winning Back the Hearts and Minds of Our Children Frederick County, Md. As a child educator, I have taken numerous attitude checks of grade school children. Over the years I have consistently asked them two questions: 1) Have you ever been told to fear a police officer? and 2) Have you been told that if you behave badly, a police officer will come to get you? I have discovered that when I ask these questions of first- and second-graders, the affirmative responses are low. The same questions posed to third- and fourth-graders, however, receive a very different response. Typically, over 80 percent of these children reveal that they have been taught to fear the police. These kinds of negative, stereotypical descriptions of the police are created in the minds of children by the people whom these children love, respect and believe. It is common knowledge that nearly every police agency in this nation is experiencing increased calls for service relating to juvenile crimes. Crimes of vandalism and violence are rising at an alarming pace. Consequently, senior citizens live in a climate of fear and distrust has been fostered among age groups. To successfully meet the challenges before us, crime prevention officers need to practice triage. Triage is the medical term used when a professional evaluates the survival capabilities of victims. Medical professionals treat those who can be saved by withdrawing care time from victims who are deemed terminal. Crime prevention officers must take a similar tack: Focus on very young children before they have gotten into trouble, and then move on to at-risk children who can still be deterred from criminal behavior. Recently, a command officer from the Frederick County, Md., Sheriff's Office visited a school whose students have been deemed disruptive and difficult to educate. The deputy selected this school because he believed the reportedly out-of-control youth deserved another chance. One day during lunch, the deputy was sitting alone at a table when one of the most troubled kids approached him. This young boy blurted out, "I don't like the police!" The deputy quietly stated, "Well son, there are some police officers that I don't much like either." The kid, apparently perplexed by the deputy's response, challenged him again by saying, "I don't trust cops either." Again, the deputy quietly agreed that there are police officers that he too cannot trust. After a moment, the boy shook his head and walked away. A week later, the deputy returned to the school and again sat down to eat his lunch. Before long, the same boy approached him. But this time, the boy was not there to confront the deputy; he only wanted to sit and talk. It is evident that the deputy won this boy's respect by acknowledging his statements and by responding without anger toward the boy's honesty. With his words, the deputy took the first step toward winning this child's trust. Our future depends upon our children. Their future depends on how they are educated, how they are taught to interact with other citizens, and if they are taught to respect the laws of our nation. Today, law enforcement officers have a unique opportunity through community policing to be partners in children's education. There are a growing number of successful youth programs striving to overcome the negative images children have of police. These programs place officers in settings where they are perceived to be allies, educators and friends to youths, rather than as adversaries. Through the school system, officers can humanize the profession of law enforcement in the eyes of today's youths. My sheriff recently stated, "Ten percent of our county's children often command 80 percent of our law enforcement time. It is now time for us to reach in a positive manner the remaining 90 percent." Also relevant today are words uttered some 250 years ago in England: "It is far better to prevent one person from becoming a criminal than to apprehend fifty." Therefore, I implore you to agree that prevention should be our catch word for the 21st century. If we as law enforcement officers do not take a stand to win back the hearts and minds of our children a concept essential to getting youth-related crimes under control then who will? By Sergeant Austin Pohl For more information write to Sergeant Austin Pohl, Frederick County Sheriff's Office, 7300 Marcies Choice Lane, Frederick, MD 21701. Phone: (301) 694-1046. Fax: (301) 694-1527. Article Six Getting Through to Kids on the Fringe A Call for Action "Gang activity is increasing steadily, and we project it will be the principal cause of homicide and serious assault cases in the next few years unless it can be abated at this point," stated a police chief in a study conducted by the National Institute of Justice. Gang-related crime is a growing concern for sheriffs and police chiefs of all jurisdiction sizes. The number of crimes being committed by juveniles is staggering. Of the more than 2,500 law enforcement officials who participated in this study, 73 percent of large jurisdiction leaders and nearly half of those in charge of mid-sized and smaller jurisdictions stated that gang-related crimes contribute to their workload. Camarillo, Calif. One Solution The State of California Youth Authority (CYA) is a coed school that incarcerates criminals between the ages of 13 and 25. At first glance, the red-brick buildings that sit atop verdant grounds speckled with fuschia flowers more closely resemble a college campus than they do a secured compound. But once inside, there is no mistaking this institution for anything other than what it is: A place where young murderers, rapists and gang members do time until they fulfill their sentences, or are transferred to prison at age 25. CYA is a facility frequently requested by juvenile offenders. Despite its popularity, this is not a country club, nor does an entry pass equal deliverance. There's still violence, there's still rape, there's still confinement, there's still a total lack of freedom. The imprisoned wards are told what to do, when to do it, and how to do it. But there is also some exceptional work being done at CYA. Both staff and inmates are working hard to keep other kids out of the system. CYA's At-Risk Youth Program is enthusiastically headed by Gang Investigation Coordinator Sergeant Edward Cue. Cue schedules tours and sessions primarily for schools and religious organizations, but also accommodates other interested groups. The program is targeted to kids already involved in gang activity as well as those at risk of criminal behavior. The program works because it is simple and genuine; it's about kids on the inside sending a warning to kids on the outside. Already, more than 5000 kids have toured the facility since the program began two-years-ago. Law enforcement officers who work with California high schools are one of Cue's primary conduits for getting at-risk kids to his program. Together, Cue, the officers, and school faculty members arrange for bus loads of at-risk teenaged boys and girls to attend a five-hour presentation at the facility. The At-Risk Youth Program has two components. It strives to both educate kids on the outside and motivate those inside to rise to a level of excellence. Cue's rule is that just because you're interested in being a speaker for the program doesn't mean you get to be one. The wards have to earn the right to participate. Currently, only 80 of the more than 900 inmates at CYA have attained the academic and behavioral requirements that entitle them to that privilege. Guest students are catapulted into the world of juvenile corrections, an experience for which not many enthusiastically volunteer. In fact, some student athletes attend only because they've been told if they don't go, they don't play. Regardless of why they are there, these kids leave CYA knowing the value of their freedom. Their knowing is not just intellectual; they feel it in their gut. From the beginning, the kids are required to conform to the same rigorous rules that apply to the wards. Even before the guest students arrive at CYA, they've been informed that clothes resembling gang attire or signaling affiliation are prohibited. This restriction is enforced as much for their own safety as it is to make a point. Guests tour the facility single-file, hands uniformly clasped behind their backs, and mouths shut. Throughout the day, the wards speak to the kids in both large and small groups and skillfully convey their isolation and regret. For five hours guest students see the criminal justice system through the eyes of those who know it best the kids who are doing time. This program is not a replica of the Scared Straight of the '70s. The wards do not yell and scream. They do not repeat the horrors of their felonies. But they do share the wisdom of their experiences and the consequences of their bad choices. They do plant powerful seeds of opposition to criminal behavior. They do make the point to the visiting students that they are but a step away from being them. The pinnacle of the program occurs at the end of the day when the wards separate into small groups with the students. The cops and the coaches linger in the background, watching their kids closely for signs. They are acutely aware of the slightest nuances and yet remain unobtrusive enough that many kids feel comfortable opening up with the wards. This is the hour when lives are changed. It is the time when one 16-year-old whispers to another 16-year-old, "You don't want to be here. I promise you, this is not how you want to spend your life." For more information about the At-Risk Youth Program contact Gang Investigation Coordinator Ed Cue at California Youth Authority, 3100 Wright Road, Camarillo, CA 93010. Phone: (805) 485-7951. Article Seven Anoka Finds Alternative to Broken Juvenile Justice System "Over 60 percent of children today are being raised in one-parent families, and for every 100 crimes committed in the U.S., only two people are incarcerated. Our only hope in dealing with anti-social behavior is prevention, because we really don't have a cure." Dr. Ron Markman, LosAngeles forensic psychiatrist, interviewer of over 3,000 murderers Anoka, Minn. In 1993, Anoka, a relatively small (18,000 people) but diverse suburb of Minneapolis, had the fifth highest crime rate out of 103 cities in the seven-county metropolitan area. The rising number of crimes committed by youths contributed to the high rate. Anoka police officers dealt with the same youth offenders over and over again. The officers were fed up with a juvenile justice system that contributed to this problem, and they called for a change. As a result, the department explored other alternatives for processing juvenile offenders, and in October 1993, established a citizen's Anti-Crime Commission. The commission reviewed juvenile justice programs in several countries and eventually found one they liked in New South Wales, Australia. The program, involving police-family conferencing, had successfully handled juvenile crimes since 1990, and in 95 percent of the cases, no second offenses had occurred. Anoka Police Department adopted the Australian model knowing that under the U. S. system, over 80 percent of youths who go into the juvenile justice system continue to commit crimes. Initially, court services and probation personnel rebuffed the department's desire to implement police-family conferences. They were concerned that police officers were overstepping their roles as crime fighters and criminal apprehenders. Anoka's Anti-Crime Commission argued that the model embodies community policing. After several meetings, everyone agreed to try it. In April 1994, the department began conducting police-family conferences and offering offenders the choice of appearing in court or participating in a conference. To be eligible for a conference, juveniles were required to be first-time offenders charged with a minor theft, vandalism, assault, or disorderly conduct; to have admitted guilt to the police; and to have parents willing to participate in the process. During a police-family conference, the offender, the offender's family (including siblings) and a role model to the offender are all present. The victim and the victim's support group or family are also present. The conference takes place in a private room at the police department where participants sit in a circle with no barriers between them. A uniformed police officer first asks the offender to explain his or her actions. Next, the victim expresses his or her feelings about the crime committed. Eventually, everyone who wants to do so shares how they feel about the offense committed. The intense meeting often results in a sense of public shaming. The offender becomes aware that the act he or she committed does not mean that he or she is a bad kid, but that his or her wrongful act had to be amended. In the end, everyone involved agrees on appropriate retribution. In many cases, something as simple as an apology is all that the victim wants. In other cases, damages are agreed to and payment is worked out. John Braithwaite, a criminologist who has authored 15 books on crime, punishment and delinquency, describes the theory behind this type of conference in his book Crime, Shame, and Reintegration. Braithwaite contends that societies with low crime rates shame offenders potently and judiciously, and suggests that the key to crime control is cultural commitment to shaming and reintegrating offenders. Anoka Police Department has held 15 police-family conferences and in no case has an offender come back through the system. Additionally, the department has received very positive feedback from victims and offenders, as well as from their respective support groups. Police officers disenchanted with the juvenile court's lack of effectiveness have also given solid support to the police-family conferences. In the two years since the department initiated police-family conferences, Anoka dropped to 13th in the metro area's crime ratings. The department stated that if ever a time comes when the conferences no longer work, they will seek new alternatives. Franklin Delano Roosevelt said, "If something doesn't work, try something different. If that doesn't work, try something else, but at least, try something." The Anoka Police Department took that sentiment to heart and now has proof positive that alternative juvenile justice systems can work. By Chief Andrew C. Revering and Senior Master Sergeant H. Allen Campbell For more information about alternative juvenile justice programs contact Chief Andrew C. Revering or Senior Master Sergeant H. Allen Campbell at Anoka Police Department, 2015 First Ave. N., Anoka, MN 55303. Phone: (612) 421-6632. Fax: (612) 422-2092. Article Eight Police and Probation Officers Join Forces to Reduce Juvenile Crime Fresno, Calif. Fresno, in central California, is the largest municipality in the San Joaquin Valley. In the early '90s, this city, like so many others, experienced a sharp increase in crimes committed by adolescents. The resulting surge of new customers spurred the juvenile justice system, known for being inept and unaccountable, to reexamine its operations. Limited by its traditions and scarce resources, the system had to be rehabilitated. Since the late 1960s, Fresno police officers have been assigned to local elementary, middle and high schools. Although originally envisioned as school resource officers, they actually operated as school-based juvenile tactical teams. In fall 1993, Fresno county juvenile probation officers joined their law enforcement counterparts to reduce juvenile crime and enhance safety at seven Fresno campuses. First, juvenile probation officers reorganized their caseloads according to high school districts. The Fresno Unified School District provided the police and probation officers with office space and computer equipment. With instant access to student criminal history records, photographs and police reports, team members comprehensively addressed juvenile crime problems. The new resources enabled the partners to conduct crime investigations, hold misdemeanor citation hearings, levy informal probation sanctions and intensively supervise probationers. The team instituted a new procedure that required students cited for misdemeanor offenses to be dealt with at their high school jurisdiction, regardless of where their incidents occurred. For example, a middle-school student cited for a curfew violation would have his or her juvenile citation and report document forwarded to the high school into which that student's school feeds. The incident would be reviewed, and the team would render a sanction for the student's actions. Sanctions have included restitution for the offense; assignment to a graffiti abatement, school or county work program; or attendance at awareness classes on violence reduction, property crime, or drug and alcohol abuse (with all course costs paid by the attending juvenile). The effects of the partnership among the school district, the police and the probation department have been dramatic. Increased visibility of police and probation officers on campus, swift adjudication of offenses, close supervision of at-risk youths, and a safer learning environment are some of the most visible benefits. Since the partnership formed, the interaction between Fresno students and the on-site officers has increased considerably. This has allowed the team to prevent some incidents from occurring and lessen the impact of others. In a span of only two years, Fresno transformed their once overburdened juvenile justice system into one that, while still lacking some resources, is no longer accused of being inept and unaccountable. When the Fresno agencies joined forces they moved firmly and effectively against juvenile-related crimes. Because of their willingness to apply new strategies to old problems, the Fresno police, probation and school departments not only united themselves, they united their community. By Captain Lynn Button For more information about police-probation partnerships write to Captain Lynn Button, Fresno Police Department, 2323 Mariposa, Fresno, CA 93721. Phone: (209) 498-1256. Article Nine Charleston Tries Voluntary Program Charleston, S.C. Chief Reuben M. Greenberg can be heard on the police radio day and night responding to calls. The chief also makes sure he is accessible to Charleston's citizens, and often acts as a sounding board. Two years ago, citizens asked Chief Greenberg to help parents keep their kids off the streets late at night. Greenberg decided that a plan similar to an antitruancy program that he started in April 1991 could possibly help alleviate parents' concerns. The truancy program assists education administrators by picking up unsupervised kids in public areas and returning them to school. In August 1993, Operation Midnight, a voluntary curfew program, went into effect. Under Operation Midnight, officers pick up juveniles on the streets between midnight and 6 a.m. and return them to their homes. Concerned parents and guardians fill out an Operation Midnight form and mail it to the Charleston Police Department to make their kids eligible. A complete list of registered youths, stored in a centralized database, is available for officers' reference. The program applies to youths up to age 17 who are travelling by foot or vehicle. "By 12 a.m., kids who have gone out to a ball game or a movie should be back at home," says Greenberg. "A lot of parents have told us that they want their kids home by midnight. We're doing our best to ensure they are." "Operation Midnight is not a mandatory curfew program and it does not require violators to appear in court," comments Greenberg. "It is totally voluntary, and the only way it works is if the parents want it to work." A voluntary program eliminates having to process youths at the station before they go home. "You're not going to lock kids up for being out too late at night, so why not just take them straight home. Also, a mandatory curfew presents problems for youths who work late or whose parents have no objection to them being out late," says Greenberg. "My officers are familiar with the kids working newspaper routes and others who have legitimate reasons for being out between midnight and 6 a.m." Youths not registered with the program are not taken home if found on the street after midnight. However, the department does not tolerate parents who allow very young children to be out in the early morning hours. "Parents who think it's okay for kids aged eight, nine and ten to be out late at night are referred to the juvenile courts. We don't see these parents as being responsible, nor do the judges," states Greenberg. Parents' reactions to Operation Midnight have been overwhelmingly positive. In two years, parents have signed up 650 kids and to date, 150 have been picked up and returned home. "We've had numerous calls from parents voicing their approval of Operation Midnight," says Chief Greenberg. "So far, our only critic has been a teenager." Chief Greenberg makes it clear that Operation Midnight is a partnership between parents and the police department. "We need the parents' support to make it work. For our part, if we see kids out on the street, we will stop them. We want to protect our youths from ending up as possible drive-by shooting victims. Conversely, we want to ensure that kids aren't out at night committing crimes. Either way you look at it, Operation Midnight is a crime prevention program." By Charles E. Francis For more information about Charleston's voluntary curfew program contact Charles E. Francis, Public Information Officer, Charleston Police Department, 180 Lockwood Blvd., Charleston, SC 29403. Phone: (803) 577-7434. Article Ten Baltimore Imposes Mandatory Curfew Baltimore, Md. It is rare in today's society to read a newspaper and not see at least one story about a juvenile committing a violent crime or being the victim of one. In the early '90s, Baltimore passed a curfew law to curb juvenile-related crime. The curfew, however, presented a major challenge for the Baltimore Police Department. Departmental procedures required officers to maintain custody of juveniles until their release could be arranged. This could monopolize patrol officers' time during curfew hours, keeping them from other duties. In July 1995, the city revamped the curfew. The new and more stringent law permits law enforcement officers to handle juveniles efficiently, without interfering with standard police operations. The new curfew prohibits anyone under the age of 17 from being on the streets between the hours of 11 p.m. and 6 a.m., Sunday through Thursday, and beyond midnight on Friday and Saturday. There are some exemptions, but the law generally applies to all youths under 17. Parents, not juveniles, must take responsibility for compliance with the law. An officer who picks up a juvenile in violation of the curfew has two options: 1) transport the minor home (or to school if found during school hours) where he or she will be released to an adult, or 2) transport the minor to a juvenile facility until a parent or guardian can be located. Juveniles who are transported to the centralized Juvenile Detention Facility (JDF) are kept separate from other offenders who are in custody for committing delinquent acts or criminal violations. Officers must complete an abbreviated juvenile custody report and a citation for the parent or guardian. Custody of the juvenile is transferred to JDF staff and the officer returns to service. Upon the juvenile's release, the parent or guardian receives a citation to appear in court. A first offense carries a $50 fine and subsequent convictions can result in one or more of the following penalties: a fine not to exceed $300 and court costs, imprisonment for not more than 60 days, or work on public streets or do public works for not more than 60 days. There are many and often valid, reasons that a juvenile violates a curfew. A daytime violator may break curfew because he or she fears a bully at school or because of a learning disability that makes it difficult to remain in class. Reasons for nighttime violations range from a difficult home life to boredom. A single law will not eliminate juvenile crime. But that doesn't mean that curfew laws, if enacted properly, aren't effective. Kids must have leadership and direction, for without it they will find their own entertainment. And the "entertainment" they seek will in all likelihood be found in an adult world that the juveniles probably aren't ready to enter. By Agent Lee Towers For more information about mandatory curfews contact Agent Lee Towers, Baltimore Police Department, Planning and Research Division, 601 E. Fayette St., Baltimore, MD 21202. Phone: (410) 396-2127. Fax: (410) 396-2145. Article Eleven Community Notification of a Sex Offender: Creates Trust, Reduces Fear Mountlake Terrace, Wash. In 1989, I learned from a juvenile institution that an 18-year-old sex offender was about to be released into my jurisdiction. The institution informed me that authorities recently found a plan and a map on this individual's computer. The two items illustrated the sex offender's plan to borrow elementary school children for sexual purposes. The community he had targeted was Mountlake Terrace. As Mountlake Terrace's police chief, I asked myself what to do with this kind of information, especially in light of potential civil litigation. My gut reaction was to go public. I kept thinking, "What happens if I sit on this information and the offender reoffends?" I saw this as a classic case of "damned if you do, damned if you don't!" Since my gut hunches have served me well in the past, I decided to publicize the information. I intended to do more than just identify the offender's name. Making this decision was easier because I had the support of my city manager and city council. I informed the citizens of Mountlake Terrace, and as was expected, the outcry over the sex offender's release was enormous. But the community's strong reaction eventually helped to bring state passage of the Community Protection Act of 1990. I knew that once the offender was released, he planned to move in with an older sister living in Mountlake Terrace. A few days after his release, I drove by the sister's house and observed the young man using binoculars to watch what appeared to be a 9- or 10-year-old boy riding a bicycle. I immediately contacted the sister who was concerned because she found baby clothes and photos of nude children hidden under her brother's bed. With our fears justified, the state agreed to help protect society from this offender. The Washington state legislature passed the Community Protection Act of 1990, an act that provides for: sex offender registration; increased penalties; civil commitment of offenders, based on probability of future offenses; and police chief indemnity for community notification. The act, while it doesn't require it, does allow law enforcement officers to notify communities, and protects them from liability for doing so. Since 1990, Mountlake Terrace, a city of 20,000, has had 22 registered sex offenders. We have gone public four times. According to Mike Hawkins, juvenile parole officer for the Washington State Department of Juvenile Rehabilitation, "Community notification meetings are just one more tool in our tool box that can and do get utilized by public agencies, be they law enforcement or parole." These meetings, in some cases, have allowed community members to confront offenders face-to-face. And in each situation, citizens have been empowered to keep the offender on the "straight and narrow." The decision to go public is based on a level-one, -two or-three notification as established in guidelines prepared by the Washington Association of Sheriffs and Police Chiefs (WASPC). A level-three notification (the highest level) is for offenders with a history of sex offenses whose victims were strangers. A level-three notification also indicates that the offender did not willingly participate in therapy while incarcerated. In Mountlake Terrace, a level-three community notification takes shape the following way: After deciding to go public, the department prepares a news release for the media that contains the offender's name, address, criminal history and photograph. Volunteer senior citizens distribute flyers door-to-door, focusing on a six-block area surrounding the offender's residence. Next, we alert schools, parks and businesses in the targeted vicinity. Finally, we use flyers to notify citizens of a scheduled community meeting. Attendance at the notification meetings has been good, with as many as 200 citizens participating. When community members first arrive, they are usually mad at me because they believe I am responsible for setting the sex offender free. Once I clarify my role, their anger usually shifts to the Department of Correction's representative, who reads the conditions of the offender's parole. At the core of their anger is frustration over why a person like this doesn't remain locked up forever, and how it is possible that he can't be barred from moving into their neighborhood. (History has shown that in many cases, a sex offender returns to the neighborhood where he lived before incarceration and where former victims often still reside.) The message communicated to community members is 1) know who the offender is and 2) know the conditions of his release. This knowledge minimizes the offender's opportunity to reoffend. Before community notification, a lack of public awareness provided the offender a veil of secrecy that made it easier for him to recommit. "Frequently, offenders appear to act within established guidelines but in reality are living a secret life of deviant behaviors that may go undetected unless offense factors are understood by all involved," explains Mike Hawkins. What about vigilantism? In the five years we have practiced community notification, Mountlake Terrace has never had a single case of vigilantism. The best news is that since implementing this program, there have been no reoffenses. By Chief John Turner For more information please call or write to Chief John Turner, Mountlake Terrace Police Department, 5906 232nd St., S.W., Mountlake Terrace, WA 98043. Phone: (206) 670- 8260.