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If you have issues viewing or accessing this file contact us at NCJRS.gov.IJR-76,.149I J J , .1I II II III II II I.,IThis microfiche was produced from documents received forinclusion in the NCJRS data base. Since NCJRS cannot exercisecontrol over the physical condition of the documents submitted,the individual frame quality will vary. The resolution chart onthis frame may be used to evaluate the document quality.I0 ; '1111128 '111113.2 " ,jil'136l::1.1l ,.::1111125.III!I ,"'"\\\\\2.0111111.8111111.25 111111.4111111.61,IMICROCOPY ReSOLUTION TEST CHARTi1. NATIUNAL fillf1LMJ lrr\' . . 1.)rMml\ '[ l' t,, Microfilming procedures used to create this fiche comply withthe standards set forth in 41CFR 1n1·11.504Points of view or opinions stated in this document arethose of the author\ 51 and do not represent the officialposition or policies of the U.S. Department of Justice.U.S. DEPARTMENT OF JUSTICELAW ENFORCEMENT ASSISTANCE ADMINIS1RATlONNATIONAL CRIMINAL JUSTICE REFERENCE SERVICEWASHINGTON, D.C- 2053112/14/76!; n a' t . f i 1m. ,e diI1LAW ENFORCEMENT ASSISTANCE AD;'lIN I STRATI ONPOLICE TECHNICAL ASSISTAi'lCE REPORTSUBJECT;REPORT NUMBER;76-29.FOR;St. Petersburg, Florida, Office of Crilne PreventionCONTR.tl.CTOR;Westinghouse Justice lnstituteCONSULTAi\lTS;JCONTRACT NUMBER:I : Petersburg,(Flo;r;::ida; - ". ;trlme Prevention Program EvaluationDATE:Timothy D. Crowe'Charles F. Wellford----- /G: ; : ;:;;-}June 1976

I ]I ]I ]I 1I ]I -]I ]I ]I ]I ]I 1I' -]I' -]I'" -]('.TABLE OF CONTENTSForeword . . . .iv1.Introduction2.Understanding of the Problem3.Analysis of the Problem4.Recomrnenda tions4.14.21-12-13-14-1A Rscomrnended Evaluation Approach4-14.1.14.1. 24.1.34-14-1Fulltime Staff Evaluation CapabilityProject Level Evaluation . . . . .OCP Overall Program Level Planning andEvaluation . . . .4-3Data Needs for Evaluation4-6APPENDICESAppendix AA-IAppendix BB-1LIST OF TABLES3-1OCP Service Data, Public Contact/Awareness,April 30, 1976 (28 months) . . . . . . . . . . . . . . . . . . 3-1LIST OFILLUST \TIO S--11-1Office of Criminal Ju:·tice Planning Organization ChartI" 11-2Office of Crime Prevention Organization Chart as ofSeptember, 1975. . . . . . 1-3I'"13-1Office of Cl'ime Prevention Organization ChartPresent . . .I'"-jI -1R-76-l49ii. . . . 1-2. . . . . . . 3-2

I JLIST OF ILLUSTRATIONS (con It)1 : ]3-2]4-1Outline of Project Evaluation Design4-24-2CJS Long-Range Planning Process . .4-4I 'I :J·4-3Office of Crime PreventionAreas of Responsibility . . .Typical Program Planning Activities -- Arranged in aCritical Path Relationship . . . . . . . . . .I JI JI JI ]I J( ]I, JI JI JI ]I JI'I'I ·;.]J.R-76-l49iii3-3. . . . 4-5

I ]I JI ]I' II ]I: JI, ]I, JI, ]I, ]I, ]I, JI, 1I, JFOREWORDThis request for Technical Assistance was ma·',e by the St. Petersburg,The requested assistance \Vas concerned with evaluating the progress of the Office of Crime Prevention'scrime prevention program, recommending new data collection methods forfuture evaluation, and designing an evaluation model for future use by thestaff.Florida Office of Crime Prevention.Requesting Agency;St. Petersburg, Florida, Office of CrimePrevention, Ms. earen PembertonState Planning Agency;Florida Bureau of Criminal Justice Planningand Assistance, Mr. H. Ray GravesApproving Agency;LEAA Region IV (Atlanta) Mr. Ben A. Jordan,Director, Program Development and TechnicalAssistance Division; Mr. John A. Gregory,Police SpecialistI ]I, JI, ]1\-76-149I.IJJiv

IIII'I'I]i.]I1I. I I. II.I.I.I.I.I.I.I.:1)IThe Office of Crime Prevention, City of St. Petersburg, Florida, wascroated in January 1974 by the Clt)' ·janager, Mr. R. n. IIarbaugh. The agency'sobjoctive was to address a July 1973 city council mandate to reduc crime inthe city within 2 years, This new office was tasked with tho responsibilityto implement the community crir:1e preve.ntion standards and goals, \"hich lYereadopted in 1973 by the National Advisory Commission on Criminal JusticeStandards and Goals. The City of St. Petersburg was supported initially byLEA:\, which provided a senior executive I Mr, Hobert Macy, to administer thenew agency fOl? a period of up to 2 years. Mr. Macy's services were provideJthrough the talent :tntoTchange progr.:lJ11 authorized in the FeueTal Intergovernmental Personnel Exchange Program.The new office went through a number of changes during its first monthof operation, which were brought about by a struggle to define the agency'soperational role generally within the framework of city government and specifically within the context of the city's responsibility for the delivery ofpolice and crime prevention services. During its first 8 months of operation,the present Office of Crime Prevention underwent four major changes, whichare indicative of the city's efforts to define a viable operational role forthis office: Crime prevention activities were initiated with theappOintment of Mr. Robert Macy as a special assistantto the City Manager (for criminal justice planning) .The Office was in its embryonic stage at this point. \'ilthin a few weeks of Mr. "\la.cy's arrival, the Office wasofficially created by the City ;·lanager lncler the titleof Office of Criminal Justi e Planning. Shortly after the creation of the Office of CriminalJustic Planning, it lVas shifted from the direction of theCi. ty lanager' s Office to the Public Safety Department(see Figure 1-1), which containeu police, fire, anuregulatory services. As part of this shift, Mr. Macyassumed the role of Deputy Public Safety Administratorin addition to heading up the Office of Criminal JusticePlanning. In this key oper tional location w1thin thecity government and the Public Safety Administration,this new office assumed four areas of responsibil.i.ty:(n) Crime analYSis, (b) coordination of State andFeueral financial assistance, ec) criminal justicecoordination, and Cd) citi:en initiative and involvment. Nearly 9 months after its creation, the Office ofCriminal Justice Planning was renameu the Office ofCrime Prevention (See Figure 1-2) and moved back underthe direction of the City Manager's Office. The Public]IIJ!I JI JI JI'INTRODUCTIONJR-76-U91-1

II "II., J]( '.1.Organizational LocationCITY COUNCILCITY tvLL\NAGER--'I " ]PUBLIC SAFETY ADMINISTRATIONAD lINISTRATOR(- ]I ]I ]I ]I ]I, II'OFFICE OF CRIMINALJUSTICE PLANNINGDEPUTY ADMINISTRATORIPOLICE OPERATIONSDIR CTORFIRE OPERATIONSDIRECTORLICENSING & INSPSCTIONDIRECTOR1.- - ---IINCLUDESHUNICIPAL JAIL]I ]I ]I JI ]I ]I JNote of Explanation:As Deputy Administrator, R. H. Macyparticipates as regular member in Municipal Staff Meeting(Agency Administrators); participates in all policy meetingsaffecting Police Operations, and is Acting Public SafetyAdministrator in the absence of the Administrator.l:lgure 1-1.Office of Criminal Justice Planning Organization ChartR-76-l491-2

I.------- ---J---J---J--J.J.-.I.---'.J.-1.&0.1--I,. .- ,.--. ,e",.---'.---i---'---' . '.':iC ·.t-.iCITY :,1:\XAGER 1---COORDI:\ATORLARRY E.7-lJ. '-JIC,t.1I. ID- ----ASSIST& T. ---AR -:OLDJOIi Citizens' SeTvices &InformationEmployee RGlationsBudgetManagement Improver.:entFinancePurchasingInternal AuditData ProcessingFigure 1"2.··Crine Prevention- Labor RelationsT.CITY h AGER lAXWELLPublic \\'orks AdministrationStreetsEngineeringKaterSani tary Se\verSani t: at h'n:-'lunicipa1 MaintenanceTraffic EngbleeringPoliceFireParks and RecreationBarfront CenterLibraryOffice of Crime Prevention Organization Chart as of September 1975COORDIX;\TORPAUL L. ta.l Affa.irsTrunsitlions i ng :.md Relievd opl:wnt,AirportUcc:ase and InspectionPicr ·hrinaFine l\rtsGrants-In-Aiel

Safety Department was disbanded and separatepolice, fire, and regulatory services departmentswere created. Both Mr, Nacy and the PublicSafety Administrator were replaced. Since thattime, the staff and programs of the Office ofCrime Prevention have remained stable,The problem confrontin: the Office of Crime Prevention (OCP) thatpr'ompted the request for technical assistance was the lack of a programevaluation process to measure the effectiveness of individual projects andthe impact of the total program on crime in St. Petersburg. This problemimpeded the planning process for OCP project efforts and prohibited OCP'sability to attribute the current reduction in net crime in St. ]letersburg percent reduction in total crimes in 1975) to OCP program inputs andefforts. As a consequence, in the absence of a. systematic analysis, planning, and evaluation process, the OCP was placed in a position of selecting,developing, and evaluating programs based on an informal and highly intuitiveplanning process.In an effort to provide meaningful technical assistance, it was determined that a conbination of planning and evaluation skills should begiven highest priority and lesser emphasis given to the provision of specializedexpertise in crime prevention technology. This focus fit with the nature ofthe request and complemented the skill levels of the existing OCP staff, whoare highly trained in crime prevention technology. The scope of the assignmentrequired the following:[ J[ [ JJ[' ][ J[. J[ J[ J( JJI .Review OCP history and current programs. Examine currently used information managementand planning processes.Identify potential information management andplanning resources available to the OCP at theci ty level.I)Analyze current and projected OCP resources andpolicy direction.9The following persons \;1ere intervie',oled eluring the onsi te visit: . r,Robert Anderson, Director, Office of Crime Prevention.i-lr. Ray Waymire, Deputy Director, Office of Crime Prevention .:-'lr. Jeffrey Symons, Crim.in'll Justice Planner, Office of CrimePrevention.Ms, CaTen Penberton, Criminal Justice Planner, Office of CrimePrevention.R. . 76-l491-4

8[ ][:[' ]].rr -l: ]o lr. Ernest Williams, Criminal Justice Planner, uffice of CrimePrevention.o Ns. Phyllis Cununings) Criminal Justice Planner, Office of CrimePrevention. Chief of Police Mac Vines, St. Petersburg Police Department."Ms. Prunela Smith: Crime Analyst, St. Petersburg Police Department.il: ]r1l ]l ]I ]I r'lr. Paul Yingst, Director, rlanagement Improvement Department,City of St. Petersburg. Mr. George Yebauer, Analyst, St. Petersburg Police Department. Mr. Frank Griffin, Criminal Justice Planner, Pinellas CountyCriminal Justice Planning Council.]I 1I 1R-76 1491-5----------- . - .-

,.[ ]"""I'r: ][: 1[ ][, ]I ]I ]I ](, 1IIIIII]I]]II.1).-1 1I ,I I-}2.UNDERSTl\' DING OF THEPROBLE.\\When the St. Petersburg City Council set its mandate to reduce crimewithin 2 years, the city administration realized that municipalities, asstatutory forms of government in FloriJa, had little control over the cTiminal justice process. Even the criminal justice system (including theSt. Petersburg Police), rccogni:':Gu the fact that crime prevention, reduction,and control were as total responsibilities - beyond the scope of thesystem's resources and authority. Just as public pollcy was swinging thescope of responsibility for crime prevention away from the criminal justicesystem to the community, the city aclminist:r:ation realized that ,1 more compTchensive approach than improving police services Ivas neeJed to achievethe crime reduction mandate. Thus, a special new city service was createdto complement the polh:e services by focusing special resources and effortson factoring crime prevention concepts and knowledge into the social andconmlUni ty processes of St. Petersburg. After a brief evolutionary and roledehnition process, two major things happened: (a) The police servicedelivery system was modified to increase its accountability, and (b) theOCP \Vas created to provide a flexible service delivery capability thatcould provide ongoing commun.ity-oriented services and special problemdirected services on an ad hoc basis.The pressure was put on the OCP (as well as on the police) and resultswero expected. The decision \'ias made to center ocr efforts on implementingappropriate standards and goals from the 1'Communi ty Crime Prevention" manualof the National Advisory Commission on Criminal Justice Standards and Goals.i\nother major course of action fool' DC? \'ias to develop special (ad hoc),short-term responses to the seasonal and random fluctuations in certaintypes of crime. Both of these approaches stressed the reduction of opportunityfor crime through citizen awareness and participation in the crime preventionprocess.R",76-1492-1

3.ANALYSIS OF THE PROBLEMI" ,Within the political and acLllinistrative framework of its developmentalprocess and organizational setting, the OCP informally developed fourobservable functional program areas in its crime prevention services - ranging from activities aimed at the integration of existing services to thecreation of new servj,ces. The four functional program areas of the OCP are:QgDevelopment and implementation of ad hoc projectsin response to special problems -- initiated byOCP and carried out jointly with other agencies. Provision of staff services for speaking, consultation, and participation on community boards,advisory committees, and organizations (outside ofgovernmental and criminal justice service realm).o[: ][' ]I JDevelopment, implementation, and OCP management ofongoing special community crime prevention projects(community participation type programs).,.:-].---. -- - - ---.- --TA.BLE 3··1.-----OCP Service DataPublic Contact/AwarenessApril 30, 1976(28 months) oI J""1,'"These four functional program areas represent a comprehensive effort to com-,:?lcment and to improve on the existing crime prevention and control system by.i.ntcgruting existing services, on either a temporary or continuous basis; undcroating new services outside the scope of existing criminal justice agencies,also on eLther a temporary or a continuous basis. Within this planning frame\'lork, the ocr is involved in a large nwnber of activities, all of which fitinto one of the four fUnctional program areas. (See Appendix A for a summaryof ocr projects). The oCP is staffed currently by six full-time professionals(eight authorized) and by a variety of volunteers (part-time employees andemployees of other agencies on special assigrunent). The OCP operating expenseis almost totally funded by the city, with some outside funds coming primarilyfrom local civic groups. (Figure 3-1 depicts the current organizationalchart and Figure 3-2 denotes areas of resp nsibility). Table 3-1 shows theocr citizen contact nnd involvement Javel of effort as of April 30, 1976,(28 months of activity).-[ Provision of temporary planning, coordination, andproject (start-up) staff services to other agenciesand organizations. Crime Prevention Presenta ionsPersons in Attendance at Presentationsl me and Business Security InspectionsHomes Enrolled in Vacation AlertProgram (SwiUner - 1975)R-76-1493-191554,1321,915713.-".- - . -. -.

L ' -" .'I., r--.r""""l r.W'If'" I- 1--'L.:'--L-.:-.!!!L--.!-- : - - L-'--I if - -I".,I,., .-. .". -,C '--.-,Lr'-.Y'"',-1"--.,.,.;,.i. '--'-SECRETARYDIRECTOR11407989R.A. AndersenJ. Cleckner, .r.CI.-.---A[' . '(I- --- -- """""' f. .--l.tSPARCOfficers1P.A.L.DEPUTY DIRECTOR 1--CLERK-TYPIST10707979D. BiroR.V, WaymireHL-IC.E.T.A.3-60802-VacantIIIIII::0)vI '--IIa-to )l-' \D[!OY - u .CRIMINAL JUSTICE1-PLANNERS7940, lAINT.(part time)NYCD, SirmonsSENIOR CO}.If.IUNITYSERVICE HIPLOYEE I (p l·t tlme)E, Merrlgan.rSPARC COORD I NXfOR 1025P. Cummings\\C.E.TIA.2.,.60803-6100Figure 3pl.J, SymonsC, PembertonE, WilliamsC, Minnis2., Vacant\V,LT.A.C,LiaisonDenotes direct chain of command asper City budget.---Denotes informal supervision overnon-City butlgcted organization.Office of Crime Prevention Organization Chart -- Present;(part-Itime}l

-------C, PembertonJ. SymonsResearch &lJevelopment7JI(,1 '-.IJ O.1.11 )f-' -1.0ProgramResearchHesourceDevelopmentGrant Prot:lIrcmentCriJ!w StatsCriminal Justice CoordinatorLegislativeInformation ,.f.-.I!.-i. . ., . . . . .E. WilliamsVacantAdministrativeServicesCommunity &Social Servic(;sBusinessAlertTrainingBudgetPersonnelStaff Progrmns.\iational Alliance ofBusinessmenJuvenile h'clfare BoardInspectionsAuto AccessoryMarkingAlarm System tyTrainingJ.,;Office of Cr.i.mc PreventIon -- Arcus of Rcsponsibillty. .,'-'rIl--'VacantC. MinnisNeighborhoodAlertScheolAlert'"High CrimeAreaOperation IDHorne PrograJ:lsClub PresentationsVacat i on ,\1 crtAll School Special PubFrogra::lslicitySU;:I:,: .·ri\eighborhoodPrograll.sAlert ReBicycleL" -llltmL.'ntSafetyCurrent CrimeIssllesSyl1l0nS*The Police Department's Youth Aid Sct:tion reccntly assumed responsibility for all theseThis Office operated them for t\·:o school years. S. Greene reccntly resigned.Figure 3-2. .-progr ms.III,III

r'rrJJ)J'II' IIr Jr J[J . J[. .[[[rr[I'I-IIIIIThe OCP collects data similar to that shown in Table 3-1; hO\"eVl r Ilittle may he inferred from these data regarding the effectiveness amIefficiencY' of the services. In add1:tion I the ocp is some\'lhat isolateo.from access to an important data manag ent resource l the police crimeanalysis unit (CAUl, because of ocr's position outside of the voliceagonct· Even th,ou h excellent rapp rt exis ts between personnel of bothof Lce.s) the OCP t S exhting (a; J potont:i;al) data und analytic needs hawtn take a righ;tful, IOh' priority 1n the Ct\U b0cause they arc oxtra .:urricularto tlle CAU function. Norcover, perhaps because of the OCPts hierarchicalposItIon in city government and its stress on project development andservice delivery, the OCP has not taken adequate Cllivantage of the datamanagement and analysis resources of the Management Inprovelllent Department,\ hich handles the managemen t by obj ectives (MBO) program for all cityagencies. (This department conducts an anIlual citizen survey -.' as Olleof its many data collection efforts -- that could be an important planningand evaluation tool for OCP staff).Tllerefore. the current problem with evaluation is keyed somewhat tothe present hierarchical position of the OCl' in the city government structureand to a greater degree to the high priority cr::lphasls on project developmont and service delivery. TIlis is manifested through insufficient resourcesand attentIon being given to evaluation. The evaluation problem is fur lerexacerbated by the failure to apply the!;e same necessary data colloction andanalytic resources to a formal, systematic planning process on the front endof tho ocr program development process. It is axiomatic that a program(and its projects) that has not been systematically plunned stands littlechance of being evaluated effectively.It is important to note that the project staff has attemptcJ to useavaj.lablc dnta in their planning and evaluation procosses. Weekly, monthly,and annual CAU crime statistics reports are analyzed ami sometimes correlatedw.i.th certain demographic data for planning and evaluation. Other data iscollected ranging from head counts at cOIlUllunity meetings 'to the recordi.ngof nam8S and addl,'csses for computer matching with offense locations. Datucollection vehicles such as utility bills, business license records. andutility hook-ups have been used at times. A few OCP evaluation questions\ ere included this past year on the ,mnual citizens survey conducted by thecity. llo\vever, the effectiveness of these efforts has been dLluted bllcauscof (n) the lack of a formal huilt-in systematic planning, data collectionand analys,is process, ano. Cb) certain methodological problems in usingc,rime data and the services of the Nanagement Impl'jvement Department

This microfiche was produced from documents received for inclusion in the NCJRS data base. Since NCJRS cannot exercise control over the physical condition of the documents submitted, the individual frame quality will vary. The resolution chart on this frame may be used to evaluate the document quality. 1 ,I i \

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