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SG OVCRAMSDEPANBJ A C EIOF FOffice of Justice ProgramsNT OF JMEUSRTCETIU.S. Department of JusticeIJJO F OJJ D P B ROJ US T I C E PBureau of Justice AssistanceBureau of Justice AssistanceAddressing CommunityGang Problems: A Modelfor Problem SolvingMonograph

U.S. Department of JusticeOffice of Justice Programs810 Seventh Street NW.Washington, DC 20531Janet RenoAttorney GeneralRaymond C. FisherAssociate Attorney GeneralLaurie RobinsonAssistant Attorney GeneralNoël BrennanDeputy Assistant Attorney GeneralNancy E. GistDirector, Bureau of Justice AssistanceOffice of Justice ProgramsWorld Wide Web Home Pagehttp://www.ojp.usdoj.govBureau of Justice AssistanceWorld Wide Web Home Pagehttp://www.ojp.usdoj.gov/BJAFor grant and funding information contactU.S. Department of Justice Response Center1–800–421–6770This document was prepared by the Police Executive Research Forum, supported bycooperative agreement number 91–DD–CX–K058, awarded by the Bureau of JusticeAssistance, Office of Justice Programs, U.S. Department of Justice. The opinions,findings, and conclusions or recommendations expressed in this document are thoseof the authors and do not necessarily represent the official position or policies of theU.S. Department of Justice.The Bureau of Justice Assistance is a component of the Office of Justice Programs, which alsoincludes the Bureau of Justice Statistics, the National Institute of Justice, the Office of JuvenileJustice and Delinquency Prevention, and the Office for Victims of Crime.

Addressing Community Gang Problems: A Model for Problem SolvingBureau of Justice AssistanceAddressing CommunityGang Problems: A Modelfor Problem SolvingJanuary 1997Reprinted August 1999MonographNCJ 156059i

Addressing Community Gang Problems: A Model for Problem SolvingForewordUrban street-gang involvement in drug trafficking and violent crime is becoming increasingly widespread—not just in large cities, but in suburbanareas and small towns as well.The Bureau of Justice Assistance (BJA) recognizes that programs aimed atcombating gang-related criminal activity must incorporate both crime prevention and crime control initiatives to be effective over long periods oftime. Accordingly, in October 1991, BJA initiated the development of aprototype model of the Comprehensive Gang Initiative.BJA is pleased to present this monograph, Addressing Community GangProblems: A Model for Problem Solving, as a product of that initiative. Themodel can assist local communities in addressing gang problems by focusing on a comprehensive strategy for preventing and controlling streetgang drug trafficking and related violent crime with components rangingfrom prevention to suppression. Police, other law enforcement agencies,and numerous public and private organizations can implement thisprototype.A companion monograph, Addressing Community Gang Problems: A Practical Guide, provides additional indepth guidance to communities developing their unique responses to local gang problems.Nancy E. GistDirectoriii

Addressing Community Gang Problems: A Model for Problem SolvingAcknowledgmentsThe Bureau of Justice Assistance wishes to thank the Police Executive Research Forum (PERF) and, in particular, John Stedman and Deborah LammWeisel, for their help and guidance in compiling this document.v

Addressing Community Gang Problems: A Model for Problem SolvingContentsExecutive Summary . ixChapter 1Introduction . 1Purpose of the Comprehensive Gang Initiative. 1Comprehensive Gang Initiative Principlesand Key Features . 2About This Monograph . 3Chapter 2Gang Problems: What We Know AffectsWhat We Do . 5What We Know About Gangs . 5What We Know About Gang Problems . 6Barriers to Addressing Gang Problems. 7Chapter 3Defining Gang Problems . 11Why Is There Concern About Gangs? . 11Identifying Gang Problems . 12Cutting Problems Down to Size . 12Labeling Problems . 14Chapter 4Solving Gang Problems . 17Scanning Stage . 17Analysis Stage . 18Chapter 5Response and Assessment . 25Response Stage . 25Assessment Stage . 28Conclusion . 31Appendix A Bibliography . 33Appendix B Sources for Further Information . 35Appendix C Problem-Solving Worksheet . 37vii

Addressing Community Gang Problems: A Model for Problem SolvingExecutive SummaryIn October 1991 the Bureau of Justice Assistance (BJA) entered into a cooperative agreement with the Police Executive Research Forum (PERF) todevelop a Comprehensive Gang Initiative prototype model aimed at combating gang-related criminal activity by incorporating both preventionand crime control initiatives. The purpose of this monograph is to providedirection in identifying, analyzing, and responding to gang-related problems and in assessing results in an effective way. Any community facingchronic or emerging gang problems can use this document together withtraining and technical assistance to determine how best to implement theComprehensive Gang Initiative.The Comprehensive Gang Initiative model is based on the followingprinciples: Adaptability. The model can be applied to a variety of gang-relatedproblems within a jurisdiction and to those problems faced by a varietyof jurisdictions.The purpose ofthis monograph isto provide directionin identifying,analyzing, andresponding togang-relatedproblems and inassessing results inan effective way. Flexibility. Modifications can be made in response to, or in anticipationof, changes within gangs, in gang problems as a result of anti-gangefforts, or in circumstances within communities. Multifaceted approach. The model involves various government andprivate agencies that simultaneously address the many factors that giverise to and sustain gang problems, and it supports direct communityparticipation in intervention efforts.In 1993 BJA introduced the Comprehensive Gang Initiative DemonstrationProgram to implement the prototype model at four demonstration sites.The four sites selected include the Suffolk County, Massachusetts, DistrictAttorney’s Office; the Tri-City Task Force of Seven Hills, Parma, andParma Heights, Ohio; the JAY Initiative of Jefferson County and Aurora,Colorado; and the San Diego, California, Police Department.What We Know About Gangs andGang ProblemsResearch into gangs and their behaviors reveals several general facts thatcan be applied across geographic, demographic, and ethnic settings. Thereis a great deal of variability in gangs, gang activity, and gang problemswithin and among communities. Gang problems evolve in response todirect interventions and indirect factors. Reactions to gangs differ—fromdenial to sensationalism. Gang problems, like most crime and disorderix

Bureau of Justice Assistanceconditions, are concentrated geographically. Finally, while responses togang problems are diverse, the responses can be grouped into three categories—prevention, intervention, and enforcement.Barriers to Addressing Gang ProblemsThe most effectiveapproaches toaddressing gangrelated problemsinvolve severalagencies or groupshandling a numberof facets of localgang problems . . . .The most effective approaches to addressing gang-related problems involve several agencies or groups handling a number of facets of local gangproblems and focusing on suppression, intervention, and prevention. Yet,even with such collaborative approaches, a number of inherent barriersneed to be overcome. They include defining gang problems, forming successful collaborations, discerning the difference between ends and means,and determining impact.Because of the diversity of gangs and their activities, many communitieshave trouble defining, or even recognizing, their gang problems. The inability to specifically define gang problems results from the absence of alocal or national consensus on the definition of gangs and the harm theyinflict. This model defines a gang-related problem as a group of harmfulincidents that occur in a community, are similar in one or more ways, andcause concern to the public.When more than one agency or group works with gang issues, lack ofcoordination is common. While agencies or groups working on gang problems carry out their respective roles, it is essential that their actions becoordinated by a management group made up of representatives of theparticipating agencies. The management group must guide the agenciesin their roles and responsibilities in responding to gang issues.Uncertainty in problem identification and difficulties in collaboration oftencontribute to a confusion between ends and means. Under pressure to “dosomething” about gang problems, agencies tend to implement and promote programs and activities that appear to demonstrate they are takingaction against gangs, even though these programs may lack clear goals andobjectives based on careful examination of the community’s problems andneeds.Also missing in many efforts are analyses of the impact that programsshould have on gang problems and how the programs alleviate harm tothe community. This uncertainty is often due, in part, to the confusionbetween ends and means. However, it may also result from an agency’sfailure to properly document the impact of its actions. Instead, there is atendency to focus on activities and processes (for example, recording attendance at a community meeting or counting the number of gang-relatedarrests), rather than on making quantifiable reductions in gang membership, gang activities, or the harm that gangs inflict on the community.x

Addressing Community Gang Problems: A Model for Problem SolvingWhen communities decide to take action to deal with gang problems, it iscommon for the individuals involved to feel overwhelmed by the concernsassociated with these problems—both the broad social problems and thebehaviors causing specific harms. The public, media, and local government agencies can become fixated on an undefined “gang problem.” Aconstructive approach is to take large, undefined problems and breakthem into smaller, more manageable ones, such as addressing graffiti at aspecific location rather than citywide. This approach allows for the development of individualized responses that can be assembled into comprehensive solutions.Solving Gang ProblemsGang problems can be addressed using a comprehensive problem-solvingmodel that encompasses the four stages of the problem-solving process:scanning, analysis, response, and assessment (SARA). This process isdesigned to solve a problem by clearly identifying it, using numeroussources of information to investigate the problem with different levels ofdetail, developing a variety of solutions, and conducting an evaluation. Scanning. The initial stage of scanning involves looking for andidentifying problems. A problem exists when the followingparenthetical terms can be replaced with specific examples: (Victims)are (harmed) by the (behaviors) of (offenders) at or in (places) at(times). Completing this problem statement is an important first stepin problem solving; it achieves consensus on the kind of problem beingaddressed and provides guidance to further understand the problem. Analysis. The objective of the analysis stage is to develop a thoroughunderstanding of a problem. Although often overlooked, analysis isperhaps the most important part of the problem-solving model becauseit provides valuable information that can be used to craft appropriateresponses to a problem. Analysis is also useful for assessing theeffectiveness of responses because it often provides a baseline forsimple before-and-after measurements of a response’s impact. Analysisconsists of straightforward investigation of concrete problems. The bestanalysis involves creative information collection. A Problem-SolvingWorksheet that provides a framework for collecting information fromthe analysis is included as part of this monograph. After a problemhas been thoroughly analyzed, goals should be established for theproblem-solving effort. Many problems cannot be solved completelyor eliminated; therefore, responses should be designed based on one ofthe following purposes: totally eliminating the problem; substantiallyreducing the problem; reducing the harm created by the problem; ordealing with the problem more effectively.The SARA model . . .encompasses thefour stages of theproblem-solvingprocess: scanning,analysis, response,and assessment. Response. The response stage has three objectives—developingresponse options that are consistent with the information analyzed,xi

Bureau of Justice Assistanceselecting responses, and implementing the responses. Responses shouldfocus on offenders, victims, third parties, places, and/or tools used tocreate the harm. The information collected during the analysis stagefacilitates the selection of the most effective responses—those responsesthat take into account community values and often contain input fromindividuals directly affected by the problem. When implementing aresponse, programs need clear and consistent leadership, even in themost collaborative efforts.The assessmentshould focus onthe problem statement, rather thanon the response. Assessment. The assessment stage provides useful feedback on howwell the response is working. This information can be used to changethe response, improve the analysis, or even redefine the nature of theproblem. Information gathered through assessment can also be usedto plan strategies for classes of problems and to revise the problemsolving process. The assessment should focus on the problem statement, rather than on the response. An assessment plan should link theimplemented response with the problem that was identified duringthe scanning stage. The true impact of a response is measured by itseffect on the harm suffered. Good assessment plans also include severalmeasures that might capture “unintended consequences.” While thereare no definite rules for assessing gang problems, the methods of information collection used in the analysis stage can be replicated during theassessment. Assessments need not be difficult. Collecting a handful ofmeasures (perhaps four or five) from different vantage points shoulddemonstrate a response’s effectiveness. It is important to take multiplemeasurements during assessment in case some measurements are notsensitive enough to illustrate impact. Assessing the effectiveness ofthe problem-solving effort emphasizes the importance of developingclearly defined goals, thoroughly documenting the entire process, andtaking baseline measurements.ConclusionThe Comprehensive Gang Initiative model provides a method for overcoming the barriers faced by agencies and groups attempting to addressgang-related problems. It is a dynamic, ongoing process that providesguidance in examining a problem and finding out what factors allow theproblem to persist. Answering the questions raised by the model is essential in selecting an appropriate response to gang-related problems incommunities.xii

Chapter 1Addressing Community Gang Problems: A Model for Problem SolvingIntroductionThis monograph was developed for agencies and groups participating inthe Comprehensive Gang Initiative, a demonstration program of the Bureau of Justice Assistance, U.S. Department of Justice. The purpose of thismonograph is to provide direction in identifying, analyzing, and responding to gang-related problems and in assessing results in an effective way.Together with training and technical assistance, this document can be usedby any community facing chronic or emerging gang problems to determine how best to implement the Comprehensive Gang Initiative. A companion monograph, Addressing Community Gang Problems: A PracticalGuide, provides additional indepth guidance to communities developingtheir unique responses to local gang problems.Purpose of the ComprehensiveGang Initiative. . . this documentcan be used by anycommunity facingchronic oremerging gangproblems todetermine howbest to implementthe ComprehensiveGang Initiative.The purpose of the Comprehensive Gang Initiative is to demonstrate acomprehensive program that prevents and controls emerging and chronicurban street-gang drug trafficking and related violent crime by identifying,promoting, and implementing promising strategies in selected jurisdictions. The Comprehensive Gang Initiative seeks to accomplish the following objectives: Assess existing community programs for preventing and controllingillegal drug trafficking and violence by gangs. Develop a comprehensive gang prevention and control process modelfor cities with chronic or emerging gang problems. Develop training and technical assistance materials that document howto replicate the model in selected sites. Provide training and technical assistance to demonstration sites. Evaluate the comprehensive gang program demonstrations. Disseminate the results of the demonstrations.The Comprehensive Gang Initiative strategy focuses on the analysis of local gang problems and the selection of the most effective intervention components as a systematic process, consisting of a set of analytical steps.Applying such an approach locally will result in tailormade interventions.The composition of each local comprehensive strategy—the mix of police,prosecutorial, educational, counseling, and other components—will differfrom one community to the next according to the types of gangs encountered and their variable harmful behaviors.1

Bureau of Justice AssistanceBecause gangsthrive indisorganizedcommunities, anylocal interventionmust rally thecommunity toorganize and worktogether.Because gang problems continually change, partially in response to interventions, any local intervention must have a strong problem-analysis component that not only gathers intelligence, but also includes data analysisand community input. Gang problems are multifaceted; therefore, local interventions require a collaborative approach. Because gangs thrive in disorganized communities, any local intervention must rally the communityto organize and work together. This approach is based on the premise that,although the nature of gang problems change, gangs have existed for along time and are not likely to disappear.Comprehensive Gang Initiative Principlesand Key FeaturesThe Comprehensive Gang Initiative model is based on three principles: Adaptability. The model can be applied to various gang-relatedproblems within a jurisdiction and to those problems faced by differentjurisdictions. Flexibility. Modifications can be made in response to, or in anticipationof, changes within gangs—and changes in gang problems resultingfrom anti-gang efforts or changing circumstances within communities. Multifaceted approach. The model involve

in problem solving; it achieves consensus on the kind of problem being addressed and provides guidance to further understand the problem. Analysis. The objective of the analysis stage is to develop a thorough understanding of a problem. Although often overlooked, analysis is perhaps the most important part of the problem-solving model because

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