Case Study - National Public Safety Partnership
Case StudyMilwaukee, WisconsinDeveloping a collaborative approach for an offender and placed-based PSP strategyThis case study examines two distinct approaches the Milwaukee Public Safety Partnership (PSP) sitetook during their PSP engagement. This report demonstrates how the PSP engagement can result invery positive outcomes and impacts with leadership and philosophical changes within an organization.In March 2016, Milwaukee was selected to be part of the US Department of Justice’s (DOJ’s) NationalPSP. The PSP is a DOJ-wide pilot program that enables cities to consult with and receive coordinatedtraining and technical assistance (and an array of resources) from DOJ to support violence reductionstrategies as part of a three-year engagement. The PSP facilitates the development of data-driven, evidence-based strategiestailored to the unique local needs of participating cities to address serious violent crime challenges. Milwaukee was part of thePSP initiative through September 2019.About MilwaukeeMilwaukee is the largest city in Wisconsin and was the 31st largest city in the United States in 2017.1 Milwaukee had an estimatedpopulation of 592,002 in 2018 and is part of the larger Milwaukee County, which in 2018 had an estimated population of 956,406.2Milwaukee lies along the western shore of Lake Michigan and has a total area of 96.8 square miles. More than 99 percent of thecity is in Milwaukee County, while less than 1 percent of the city falls into two unpopulated parts of the neighboring counties:Washington County and Waukesha County. The population of Milwaukee as of 2018 was 37.6 percent Black, 34.5 percentWhite, 20.2 percent Hispanic, and 4.3 percent Asian.3 The remaining percentage represents races and ethnicities not previouslymentioned or those who identified as more than one race or ethnicity.The Milwaukee Police Department (MPD) is in charge of policing the seven police districts of the city. According to the Police DataInitiative, the department has 1,886 sworn officers, led by Chief Alfonso Morales.4 In addition to the MPD, the Milwaukee CountySheriff’s Office (MCSO) patrols the freeway and provides law enforcement presence at Milwaukee Mitchell International Airportand the Milwaukee County Institutions Complex.The Milwaukee violent crime rate in 2011 was 999.1 per 100,000 population. The rate increased through 2014, when the violentcrime rate was 1,484.7 per 100,000 population.5 In comparison, the US national violent crime rate average was 362 per 100,000population in 2014, and the national violent crime rate slowly decreased during the same time period.6 In addition to an increasein overall violent crime, Milwaukee saw an increase in its murder rate between 2014 and 2015, with a rate of 24.15 homicides per100,000 population in 2015 compared to 14.99 per 100,000 population the year before.7 In USA Today’s 2015 rankings of the mostdangerous cities in America, Milwaukee was ranked the fifth most dangerous city.8123678PAGE 145https://www.baruch.cuny.edu/nycdata/world cities/largest ?q milwaukee%20city&g 1600000US5553000&lastDisplayedRow 29&table DP05&tid ACSDP1Y2018.DP05&layer place&vintage 2014&mode; https://data.census.gov/cedsci/table?q milwaukee%20county&g 0500000US55079&lastDisplayedRow 0&table B01003&tid ACSDT1Y2014.B01003&layer county&vintage 2018&modehttps://data.census.gov/cedsci/table?q milwaukee%20city&g 1600000US5553000&lastDisplayedRow 93&table DP05&tid ACSDP1Y2018.DP05&layer place&vintage JurisLarge.cfm?NoJuris Yes&CFID 346873709&CFTOKEN /
Milwaukee PSP Part 1: Place, People, and Community-Based StrategyIn order to strategically focus efforts in Milwaukee, the local and federal partner agenciesdeveloped a Violence Reduction Network (VRN)9 Milwaukee Strategic Plan in May 2016,“The Public Safety Partnership has been integral toMPD’s mission of reducing the levels of crime, fear,and disorder, and our close work with our federal lawenforcement partners has brought much-neededresources and support for violent crime reduction.Through PSP, Milwaukee has seen significantsuccess in reducing crime in the one of the highestcrime areas of our city.”— Chief Edward Flynnfocusingonreducingfirearm-related violent crime in a hot spot.In less than one year, the MilwaukeePSP strategy resulted in decreasesin violent crime in the targeted area.In 2016, the strategy produced a14 percent reduction in total Part1 crime and a 28 percent reductioninnonfatalshootingsinthetargeted area.The Milwaukee PSP strategy focused on a specific geographic area within the city, knownas the Center Street Corridor (CSC). As of 2016, the CSC accounted for more than 10 percentof the city’s violent crime and 11 percent of priority calls for service. Although the city ofMilwaukee spans almost 97 square miles, the 2.3-square-mile CSCwas not only affected by disproportionate crime rates but also bysignificant demographic challenges, with poverty at 39 percent and anunemployment rate of 16 percent in 2016.The Milwaukee PSP strategy also highlighted and targeted the mostprolific high-value violent offenders in the CSC. To identify targets,the Intelligence Fusion Center identified individuals with significantcriminal histories who were driving the violent crime in the CSC. TheEXAMPLES OF TRAINING ANDTECHNICAL ASSISTANCE provided tothe Milwaukee PSP SiteCrime Analysis Workshop in Charlotte, NCcenter compared these violent offender targets to similar offendersCrime Analysis Technical Assistanceby analyzing crime data, criminal intelligence, and connections amidCrime Analyst Training (Chris Bruce)criminal social networks. The objective of focusing on these individualsDetective Functions Technical Assistancewas to disrupt the criminal activity of large and evolving networksusing collaborative strategies of intelligence collection and sharing,rapid and coordinated apprehension, and optimal prosecutions. ThePSP in Milwaukee offered a holistic approach to crime prevention thatincluded both traditional policing tactics and community-orientedpolicing practices.Unified GoalPolice agencies around the country often collaborate with their federallaw enforcement partners. Though these federal agencies network andconduct joint operations or task forces, each agency has a specificlaw enforcement mission. For example, the US Drug EnforcementAdministration (DEA) focuses on controlled substances, and the USVisit with Gun Crime Intelligence SubjectMatter Expert (Scott Thompson)International Homicides InvestigatorsAssociation Advanced Homicide TrainingExchange with Newark on consent decreesPeer Exchange with Seattle PD to learnabout Compstat 2.0Technology and Information SharingTechnical AssistancePhoto Line-Up Best PracticesNaval Postgraduate School SocialNetwork Analysis Symposium (2018)9The Violence Reduction Network was the pilot program for DOJ’s National Public Safety Partnership.PAGE 2Marshals Service (USMS) focuses on fugitive apprehension. The
Milwaukee PSP strategy represented a different federallaw enforcement approach that took collaboration to anew level by establishing strategies and metrics through ashared mission to reduce violent crime in the most violentarea of the city. This does not mean that the federal partnersabandoned their primary law enforcement missions; instead,all agencies dedicated resources and strategies to theidentified area with a common identified goal—achieve a 20percent reduction in firearm-related violent crime in the CSCby September 2018. Partners also aimed to reduce majorcrimes, including homicides, robberies, and carjackings.Accountability MechanismEstablishing percentage goals in crime reduction can bechallenging and risky for police because of the potentialfor creating unrealistic expectations and the numerouscontributing factors that are beyond their control; however, the Milwaukee PSP partners recognized the importance of setting atarget metric as a means of accountability.To maintain ongoing accountability, the Milwaukee partners developed a regular PSP CompStat meeting. The meetings takeplace every six to eight weeks and are led by the MPD. Approximately 50 law enforcement officials attend these meetings,including the Milwaukee County District Attorney’s Office; the US Attorney’s Office–Eastern District of Wisconsin; the Bureauof Alcohol, Tobacco, Firearms and Explosives (ATF); the DEA; the Federal Bureau of Investigation (FBI); and the USMS. Duringthe meetings, each agency provides information and data on operations related to the PSP strategy. These meetings providea forum for direct and candid dialogue between law enforcement agencies and prosecutors on how to effectively evaluate theimpacts of the strategy from investigations to arrests to prosecutions. These meetings have not only resulted in improvedcommunications but have also provided an opportunity to evaluate what is working and what is not. CompStat includes statisticson the following outcomes: homicides, non-fatal shootings, Part 1 Crime, firearm-related violent crime, ShotSpotter activations,carjackings, disorder calls for service, and clearance rates. The PSP CompStat includes data on arrests, gun recoveries, NationalIntegrated Ballistic Information Network (NIBIN) investigations, search warrants executed, drug seizures, proactivity, andcommunity engagement.In addition to the CompStat meetings, all partners participate in a biweekly PSP update call. The goal of this networking is topromote information sharing, enhance strategies, and deconflict existing operations.Some collaborative ongoing efforts in the Milwaukee approach include their Project Safe Neighborhoods High Value Target list,which identifies Milwaukee’s most prolific offenders and those who have a nexus to the CSC; the creation of a National Crime GunIntelligence Center in collaboration with ATF that has an embedded NIBIN system; and the MPD’s expansion of its ShotSpotterdetection system to ensure coverage in the neighborhoods most impacted by gun violence.PAGE 3MPD Dedicated Crime Analysts: The MPD crime analysts use multiple datasets including, but not limited to, violent crime, propertycrime, calls for service, license premises, US Census data, bus routes, and foreclosed and vacant properties to help directattention to specific locations within the CSC. Lead Collaborative Meetings: MPD facilitates biweekly and CompStat meetings. During these meetings, an assistant chiefprovides an overview of Milwaukee’s citywide and CSC crime rates. Additional MPD commanders provide updates on
any operational strategies that are in place or being developed to target violent crime in the CSC, such as foot patrol ordedicated resources. Activity Tracking: MPD tracks their proactive operations in the CSC, such as traffic stops, subject stops, business checks,probation and parole checks, patrol officers park-and-walk, and citizen contacts. MPD also tracks their citizen complaintsand use of force incidents in the CSC. From 2015‒2016, police activities increased significantly, while citizen complaints anduse of force by MPD officers declined within the CSC. Community Engagement: MPD established a community outreach engagement in the CSC and surrounding districts, throughwhich they have facilitated more than 50 community events and 282 community meetings.FBI Intelligence and Analysis: From the onset, the FBI helped develop the interagency violence reduction strategy, geospatiallymapping and analyzing prior-year homicide and nonfatal shooting data. Task Force and Investigations: The FBI redeployed its Safe Streets Gang Task Force, with a focus on violent gangs operatingin the CSC. The FBI implemented a hybrid investigative strategy working long-term gang investigations that were supportedby short-term enforcement operations (warrant sweeps, strategic arrests, search warrants, and high visibility operations).The strategy was designed to develop confidential sources with access to the targeted groups, as well as to develop relevantgang and violent crime intelligence in and around the CSC.ATF Gun Intelligence: The ATF supports NIBIN technology and eTrace intelligence, which help target the firearms traffickers,unlicensed firearms dealers, and straw purchasers who supply the crime guns fueling the violence in the CSC. Assigned Agents: Milwaukee ATF resources devoted five agents to the MPD Intelligence Center, through which firearmand ballistic analysis can occur within just several hours, providing investigators with immediate follow-up informationon gun crimes.DEA The DEA assigned two special agents to the FBI Safe Streets Gang Task Force. The agents support operations and longterm investigations. Assigned agents compile information from interviews and other sources and use this information tofurther narcotics investigations within the city and identify sources of supply. DEA Milwaukee has multiple investigations inprogress; these investigations have resulted in many arrests, gun seizures and the confiscation of significant quantiles offentanyl, heroin, and cocaine.USMS Warrant Sweeps: In cooperation with local and federal partners, USMS has performed numerous fugitive warrant sweeps inthe CSC, resulting in the apprehension of many violent fugitives, including gang members and sex offenders. Sex Offender Registry Program: The USMS, utilizing its authority granted under the Adam Walsh Act, assisted the WisconsinDepartment of Corrections in the development of a sex offender registry program in the CSC. The USMS supported theWisconsin Department of Corrections in conducting compliance checks in the CSC and in developing investigations leadingto the arrest of several sex offenders who were in violation of registration requirements.District Attorney’s OfficeThe District Attorney’s Office is committed to vigorous prosecution of violent offenders in the CSC. The Deputy District Attorneyassigned to work with the PSP initiative coordinates referrals for charging identified violent offenders in the CSC to improveAttorney Generals who have been assigned to the District Attorney’s Office are designated to assist in CSC investigations andPAGE 4charging outcomes, and also tracks charging and prosecution outcomes based on referral data from MPD. Two Assistant
to prosecute case-managed cases arising from those investigations. District Attorney Investigators are available to liaisonbetween officers and prosecutors, as necessary.United States Attorney’s OfficeCase Referral Process: The Deputy Criminal Chief responsible for violent crime has been working with MPD to improve thereferral process for firearm cases. The goal of federal prosecution is to optimize offender exposure and take advantage offederal mandatory minimum sentences when available. The new process should result in improved identification of “federal”cases and increased efficiency in reviewing and charging appropriate cases.Carjackings: The USAO is committed to prosecuting carjacking suspects when appropriate, a goal consistent with thePSP approach.Violent Crime ImpactsFor 2016, the Milwaukee PSP strategy produced a 14 percent reduction in total Part 1 crime and a 28 percent reduction in nonfatalshootings in the targeted area. Milwaukee police officers conducted more than 45,000 proactive activities and initiated 3,300positive citizen contacts, which included combining traditional policing tactics with community-oriented policing in order toreduce fear and enhance community trust.Table 1. Impacts—Part I Crime in the Center Street Corridor 007 - 7567523488422435451.2329-27%CrimeAuto ThefttAverage - 2016% 59765672801811770867814.3746-8%Property 1,713.41,202-30%Total 2,527.81,948-23%TheftViolent CrimeFederal Agency ImpactsThe PSP federal partners focused on firearm arrests, gun seizures and recoveries,search warrants, drug arrests, and high-value offender arrests. These efforts resulted in: The FBI Southeastern Wisconsin Regional Task Force conducted more than 10CityPopulation(2010)GunRecoveries2016Rate per100,000594,8332,419406.67major violent gang investigations in the CSC leading to 108 arrests, 52 searchMilwaukeewarrant executions, 85 gun recoveries, and two Title III wiretap cago2,695,5986,644246.48Los Angeles3,792,6215,908155.78New YorkCity8,175,1333,58343.83 The FBI nominated two CSC-related homicide fugitives to the FBI Ten Most Wantedlist and captured both within 30 days. With assistance from ATF, the DEA, and the FBI, Milwaukee has increased itsnumber of gun seizures and recoveries by 11 percent within the CSC between 2015more than many other large agencies.PAGE 5(234) and 2016 (260). MPD recovers 407 firearms per 100,000 residents, which is
Milwaukee PSP Part 2: MPD Leadership Transition anda Renewed Emphasis on People and PlacesOn February 15, 2018, Captain Alfonso Morales was named Interim Chief of Police for the Milwaukee Police Department. On April5, 2018, Morales was named Chief of Police until January 2020. Upon Chief Morales’ appointment, he closely examined the PSPengagement and assessed whether the approach aligned with his vision and goals for the organization. Chief Morales easilyaccepted and embraced the core principles of PSP but also made itclear that he would utilize the PSP resources and any strategies to alignwith his vision for the community and the department.With Morales as Chief of Police, the MPD and its partners continued tofocus on specific areas with renewed emphasis on people and problemsin hot spots across the city. Under Chief Morales’ leadership, the MPDalso expanded its focus. Following a peer-to-peer visit at the OaklandPolice Department (led by then-captain Morales), the MPD delegationparticipated in meetings concentrating on Oakland’s shoot reviewprocess. After becoming Chief of Police, Morales initiated Milwaukee’s“The Milwaukee Police Department creates andmaintains relationships with law enforcement,research, and community partners to combat violentcrime. The Public Safety Partnership has been avaluable tool to foster collaborative relationshipsthat target problem areas. With PSP, MPD and itspartners have focused on areas of the city thatdrive the majority of violent crime and have seensignificant reductions in violent crime.”– Chief Alfonso Moralesshoot review process with a focus on violent crime from the past sevendays. Those accountability sessions discuss locations, suspects andvictims. Assigning impact scores to the incidents facilitates mitigation strategies for each incident in collaboration with federallaw enforcement, researchers, and community support organizations. Under the direction of Chief Morales, MPD continues toexpand the involvement of the community in the shoot review process. This has led to additional peer-to-peer interactions withthe Oakland Police Department to further explore their success. Meanwhile, MPD has become a “go-to” agency for other PSPsites interested in implementing an effective shoot review process.The Chief also created the Special Investigation Division (SID) in Febru
PSP. The PSP is a DOJ-wide pilot program that enables cities to consult with and receive coordinated training and technical assistance (and an array of resources) from DOJ to support violence reduction strategies as part of a three-year engagement. The PSP facilitates the development of data-driven, evidence-based strategies
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3 Contents List of acronyms 4 Executive Summary 6 1 Introduction 16 2 Methodology 18 3 Case Studies 25 Case Study A 26 Case Study B 32 Case Study C 39 Case Study D 47 Case Study E 53 Case Study F 59 Case Study G 66 Case Study H 73 4 Findings 81 Appendix A - Literature findings 101 Appendix B - CBA framework 127 Appendix C - Stakeholder interview questionnaire 133
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