PROMISING PRACTICES FOR USING COMMUNITY POLICING
PROMISINGPRACTICES FORUSING COMMUNITYPOLICINGTO PREVENTVIOLENT EXTREMISMHow to Create and Implement aCommunity Outreach ProgramElizabeth MillerJessica ToliverDavid SchanzerPolice Executive Research ForumTriangle Center on Terrorism and Homeland Security
PROMISINGPRACTICES FORUSING COMMUNITYPOLICINGTO PREVENTVIOLENT EXTREMISMHow to Create and Implement aCommunity Outreach ProgramThis project was supported by AwardNo. 2012-ZA-BX-0002, awarded by the NationalInstitute of Justice, Office of Justice Programs, U.S.Department of Justice. The opinions, findings, andconclusions or recommendations expressed in thispublication are those of the author(s) and do notnecessarily reflect those of the Department of Justice.
TABLE OF CONTENTSAcknowledgments. iPreface . 1Introduction . 3SECTION I – Planning: Laying the groundworkfor a successful outreach programStep I: Articulating your guiding philosophy . 5Step II: Determining the best organizationalapproach for your agency . 7Step III: Staffing your outreach team with theright people . 10Step IV: Developing a training program . 11Step V: Developing partnerships with other localagencies . 15Step VI: Developing an assessment andintervention plan . 17SECTION II – Implementation: Practicalsteps for building and sustaining relationshipswith community membersStep I: Reaching out to community membersto establish relationships . 22Step II: Understanding and overcoming barriersto engagement. 25Step III: Broadening your reach beyondcommunity leaders . 27Step IV: Sustaining the relationships that youhave built. 29SECTION III – Summary of Recommendations . 31
ACKNOWLEDGMENTSThis research project was funded by the National Institute ofJustice (NIJ) and conducted by Duke University, the PoliceExecutive Research Forum (PERF), and the University ofNorth Carolina at Chapel Hill. This manual is primarily basedon interviews and site visits with police departments by thePolice Executive Research Forum. We would like to thank all of theagencies that participated in our survey and telephone interviews, andextend special thanks to the departments that opened their doors to usduring our site visits. Your insights and expertise are the foundation ofthis guide.i
PREFACEPurpose of this guideThis publication is a guide for police professionals on how to conceptualize, create, and implement acommunity outreach program with the goal of building productive partnerships with community membersto improve public safety and, in so doing, counter violent extremism and address other public safetyconcerns.The basis for these recommendationsThe basis for the recommendations included here is a two-year study that was conducted by DukeUniversity, the Police Executive Research Forum, and the University of North Carolina, Chapel Hillbetween June 2013 and April 2015. The purpose of the study was to: Measure the extent to which local police agencies across the country are attempting to implementcommunity engagement programs as a means to address violent extremism; Identify the strategic and programmatic elements of these efforts; Catalogue promising practices; Identify barriers that inhibit engagement efforts; and Recommend policies and practices to improve the efficacy of these programs.The study was conducted in four parts: Survey: We surveyed all 480 state, county, and municipal police agencies in the United States with morethan 200 sworn officers, plus 63 additional county and municipal agencies with 200 or fewer swornofficers in selected jurisdictions that experienced an incident or prosecution for violent extremism inrecent years. The survey yielded responses from 339 of the larger agencies and 43 of the smaller agencies.Of these, 35 were state agencies, 141 were county agencies, and 206 were municipal agencies. Takentogether, their combined jurisdictions cover 86 percent of the U.S. population. Telephone Interviews: These survey results were reviewed, and 18 responding police agencies wereselected for in-depth telephone interviews, based on criteria such as the threat posed by violent extremism(such as Al Qaeda-inspired, racist, environmentalist, and/or anti-government extremism) in responding1
agencies’ jurisdictions, and their use of community policing practices to counter violent extremism. Site Visits: From the 18 police agencies interviewed over the phone, eight were selected for site visits.These site visits included extensive interviews with outreach specialists (including sworn and non-sworn)and their community partners, review of materials produced as part of outreach efforts (e.g., flyers,PowerPoint presentations used in trainings, and videos), and observation of community meetings andevents. Focus Groups: A separate team of researchers, traveling at different times than those meeting with policeagencies and their partners, met with community organizations and focus groups of community membersin these jurisdictions and several others. Our focus groups consisted entirely of Muslim Americansbecause, of all the communities with members at risk of recruitment to violent extremism, policingagencies had made the most progress building relationships with Muslim Americans. Participants wererecruited to provide ethnic, gender, and generational diversity with a view toward generatingconversations that would offer contrasting experiences and opinions of Muslim-Americans’ interactionswith the police and other law enforcement agencies. However, participants were not randomly selectedand cannot be considered statistically representative of Muslim communities.All participants in the study, including police and community members, were guaranteed anonymity toencourage candor.The findings from this research project are contained in the report, “The Challenge and Promise of UsingCommunity Policing to Prevent Violent Extremism,” available full-report-FINAL1.pdfHow this guide is organizedThis guide is divided into two parts. The first is geared toward police executives and/or police officialscharged with creating their departments’ outreach programs and provides recommendations on how to planand implement an outreach program. The second part is geared toward outreach officers/civilian outreachteam members and outlines best practices associated with building and maintaining relationships withcommunity members, including common obstacles to engagement and how to overcome them.2
INTRODUCTIONFor police agencies and community members alike, violent extremism – which is ideologicallymotivated violence to further political goals – is a serious and immediate public safety concern. Foryears, many policing agencies have been using principles of community-oriented policing to addressviolent extremism. This manual presents a compilation of many of the promising practices thatthese agencies have developed and implemented and recommendations informed by the views ofexperienced police chiefs and officers, as well as the community members they serve.The core insight from this research is that police departments will be most effective in preventing violentextremism by treating it as one of many public safety problems that communities face and partnering withcommunities to develop effective prevention programs and strategies.This broad-based approach is necessary because the threat of violent extremism is rarely the public safetyissue that has the most immediate impact on people’s daily lives. Community members want to work withthe police to address concerns ranging from violent crime to school safety and cyber bullying. Policingefforts that focus exclusively on violent extremism – a threat that many communities do not rank as a topconcern – may inadvertently imply that the police are not interested in tackling the full spectrum of issuesimpacting their communities. A unidimensional approach may also be mistaken for a police effort to collectintelligence rather than a dedication to building strong relationships of trust.Moreover, initiating a new outreach program dedicated exclusively to combatting violent extremism is adaunting task for police departments strapped for resources. A better approach would be to incorporateinto existing community building and crime prevention efforts outreach programs that also enhancecommunity resilience to violent extremism.Our research suggests that using these well-established community policing strategies can build the type oftrusted relationships that can serve as a platform for addressing the problem of violent extremism. Buildingtrust between communities and policing agencies is important for many reasons, as research on communitypolicing strategies over the past two decades has demonstrated. However, it is especially vital for tacklingthe problem of violent extremism. Our interviews with Muslim American community membersdocumented that this particular community believes it has experienced widespread discrimination since9/11 that has made its members deeply suspicious of virtually any governmental programs or initiatives thathave a connection to “counter-terrorism.” Overcoming this source of distrust is a prerequisite to thedevelopment of meaningful preventative efforts.Yet, policing agencies that have developed strong bonds with their Muslim American communities believethat these relationships can be used to address the problem of violent extremism. We saw examples of3
Muslim American community members reaching out to police agencies for assistance when they hadconcerns about the direction in which their children were headed. They had established a trustingrelationship and knew that officers could help them in getting the help their children needed. Policeagencies can also provide education about violent extremism and serve as a catalyst for programs to buildcommunity resilience against violent extremist ideologies.This guide provides recommendations on how to create outreach and engagement programs that includebuilding communities’ resilience to violent extremism among larger community-building and crimeprevention efforts. This manual builds on common community policing strategies but highlights keyconcepts that are especially relevant to building the type of relationships that can serve as a platform forviolent extremism prevention efforts.1The elements of such programs are: Engagement efforts that are broad-based and include all communities in a jurisdiction; Outreach officers who are transparent about who they are and what they hope to achieve through theirengagement efforts; Police outreach activities and intelligence collection that are kept separate; An outreach team who reflects the makeup of the community as a whole and consists of officers withexceptional interpersonal skills; An outreach team that is adequately staffed, so that someone is always available to address communityconcerns; Members of the outreach program who work closely with other government agencies, social serviceproviders, and community groups; An outreach team who collaborates with community members to create and deliver cultural awarenesstraining for members of the department; and Outreach officers who understand that “social work” activities and attentiveness to quality-of-life issuesare part of the work of policing.Each of these elements will be expanded upon in the sections that follow. Section I is geared toward policeexecutives and/or police officials charged with building their departments’ outreach programs. Section IIprovides practical guidance for outreach officers themselves. Ideally, everyone involved in outreach andengagement should have a familiarity with all of the concepts (and challenges) discussed in this guide. Thispromotes understanding by the different members of the outreach team of their various roles.1There is a vast literature on community policing strategies. Many publications and training program are available from the United States Department ofJustice, Office of Community Oriented Policing Services (COPS). Among the most relevant to this manual are: The President’s Task Force on 21st CenturyPolicing, Final Report (2015); The President’s Task Force on 21st Century Policing, Implementation Guide: Moving From Recommendations to Action(2015); Caitlin Golkey and Susan Shah, Police Perspectives: Building Trust in a Diverse Nation – No. 1. How to Increase Cultural Understanding; No. 2.How to Serve Diverse Communities; No. 3 How to Support Trust Building in Your Agency (2016); Pradine Saint Fort, Noëlle Yasso, Susan Shah, EngagingPolice in Immigrant Communities, (2012); Mary Beth Gordon, Making the Match: Law Enforcement, the Faith Community, and Value-Based Initiatives(2004).4
SECTION I: PLANNINGLaying the groundworkfor a successfuloutreach programSTEP I: Articulating your guiding philosophyThe first step in establishing an outreach program is laying out its overall approach or “guiding philosophy.”This approach should be directly informed by the program’s goals. Often, these goals are as simple as“building better relationships with the community” or “building trust with community members who arewary of the police department.”Outreach programs should be grounded in a commitment to the “whole community” approach,transparency, and addressing all of the public safety and quality-of-life concerns of the community. Thesuccess of outreach programs is predicated on community members trusting outreach officers and feelingconfident that these officers’ only motive is improving their relationships with the police department andtheir quality of life.The goal of an outreach program should not be gathering intelligence for use in criminal investigationsand prosecutions. An outreach program with an intelligence objective is almost certain to fail.This does not mean that the outreach program will not result in community assistance to support lawenforcement and national security objectives. Our research demonstrated that police agencies that buildgenuine trust with their communities will be viewed as trusted partners to whom sensitive information maybe provided.The whole community approachWhat it isTaking a “whole community” approach means that an outreach program consciously includes everysegment of its community – including people of diverse faiths, races, ethnicities, socio-economicbackgrounds, cultural traditions, gender, and sexual orientation – in its outreach efforts.The goal is to create a sense of belonging so that everyone feels a part of the community. This meansbuilding – or in some places, rebuilding – trust between the police and the communities that they serve, aswell as serving as a bridge among groups within the community who might otherwise be isolated from oneanother.5
Why it worksPut simply, community members who feel a sense of belonging to the community as a larger whole aremore invested in keeping their shared community safe.Outreach programs that do not encompass the entire community, but rather concentrate on one or severalgroups, run the risk of alienating community members. Alienation may occur because singularly-focusedengagement efforts may create the impression that the police agencies perceive a particular community topresent a heightened public safety threat.How to achieve the whole community approachThe whole community approach is not a “one size fits all” model of community engagement. The varioussegments of a given community have different needs and are best served by forms of outreach that aretailored to them.What does this tailored outreach look like in practice?To give one example, there might be members of your community for whom it is culturally taboo forwomen to socialize with men who are not their husbands or family members. It is important to understandsuch cultural practices when putting together your outreach program so that male officers are not taskedwith reaching out to these women. Tasking women from your engagement team with reaching out towomen in these communities in your jurisdiction demonstrates to the community as a whole that the policedepartment understands and is respectful of its cultural norms.TransparencyTransparency should be a stated goal of any community outreach program from the outset and shouldinfuse every level of planning and implementation.Outreach and engagement are about building relationships of trust. The implicit message of transparency isthat the police have nothing to hide. Outreach programs, even those created with the best of intentions andwith no hidden agenda, can fail if the goals and objectives of their efforts are unclear to the community.In the initial stages of building an outreach program, being transparent means making communitymembers aware of the fact that their police department is creating an outreach program that is meant tostrengthen police-community relationships and not to provide a cover for intelligence-gathering.Addressing all public safety concernsJust as an outreach program should take a “whole community” approach, so too should it consider the fullpublic safety picture of the community that it serves. This is especially important when a police agency isaiming to build its community’s resilience to violent extremism through community engagement.Violent extremism should not be the only focus of those efforts. Successful engagement programs are thosethat demonstrate a concern for the community’s quality of life and safety in their totality, not just as theypertain to a narrow category of criminal behavior motivated by extremism. Extremism is one concernamong many that might face a given community, and one that police agencies cannot effectively addresswithout the buy-in of community members. Achieving buy-in requires demonstrating an investment in thecommunity and its health through comprehensive attention to community members’ needs.6
RECOMMENDATIONSArticulating your guiding philosophy1. Outreach and engagement programs should be informed by a “whole community approach.” Thismeans that they should reach out to all segments of their communities in an effort to build acohesive social identity.2. As part of their “whole community approach,” outreach programs should consider the specificsocial and cultural needs of the different members of their communities and tailor their outreachefforts to them. This means recognizing that some community members might be morecomfortable talking to female officers. Or some community members might prefer to work withofficers on a neighborhood sporting event, rather than attending sit-down community meetings.Outreach programs should not adopt a “one size fits all” approach to community engagement.3. Outreach officers should be transparent about who they are, their intentions, and program goals.Police agencies cannot leave any room for doubt about the intentions of their outreach programs.Information should be made readily accessible to the community to demonstrate that outreachofficers have no hidden agenda.4. Outreach programs should never have an intelligence objective. This is because the ultimate aim ofcommunity outreach should be building trust and collaborative partnerships between the police andthe communities that they serve. If community engagement officers are t
community outreach program with the goal of building productive partnerships with community members to improve public safety and, in so doing, counter violent extremism and address other public safety concerns. The basis for these recommendations The basis for the recommendations inc
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