Reducing Fear of Crime in Houston and Newark A Summary Report by Antony M. Pate Mary Ann Wycoff Wesley G. Skogan Lawrence W. Sherman NIJ National Institute of Justice _____________________________________________________________________________________________ Police Foundation 1 Reducing Fear of Crime in Houston and Newark The Police Foundation is a national, nonpartisan, nonprofit organization dedicated to supporting innovation and improvement in policing. Established in 1970, the foundation has conducted seminal research in police behavior, policy, and procedure, and works to transfer to local agencies the best information about practices for dealing effectively with a range of important police operational and administrative concerns. Motivating all of the foundation’s efforts is the goal of efficient, humane policing that operates within the framework of democratic principles and the highest ideals of the nation. The Police Foundation’s research findings are published as an information service. Permission to quote is readily granted. The research described herein was conducted under grant number 83-IJ-CX-0003 by the National Institute of Justice, Office of Justice Programs, U.S. Department of Justice. Points of view or opinions contained in this document are those of the authors and do not necessarily represent the official position or policies of the U.S. Department of Justice. © 1986 by the Police Foundation. All rights, including translation into other languages, reserved under the Universal Copyright Convention, the Berne Convention for the Protection of Literary and Artistic Works and the International and Pan American Copyright Conventions. Permission to quote readily granted. Library of Congress Catalog Number 86-60533 Police Foundation 1201 Connecticut Avenue, NW Washington, DC 20036-2636 (202) 833-1460 Fax: (202) 659-9149 E-mail: [email protected] On the Web at www.policefoundation.org _____________________________________________________________________________________________ Police Foundation 2 Reducing Fear of Crime in Houston and Newark CONTENTS Foreword..................................................................................................................................5 Preface .....................................................................................................................................7 A Note for Police Administrators...............................................................................................9 Authors’ Acknowledgements...................................................................................................10 Introduction and Major Findings............................................................................................11 I. The Task Force Planning Process............................................................................................14 II. The Programs.........................................................................................................................15 Houston Police-Community Newsletter..............................................................................................15 Community Organizing Response Team...............................................................................15 Citizen Contact Patrol..........................................................................................................15 Police Community Station....................................................................................................16 Recontacting Victims...........................................................................................................16 Newark Police-Community Newsletter..............................................................................................17 Reducing the “Signs of Crime”.............................................................................................17 Coordinated Community Policing.........................................................................................20 III. Levels of Effort Required.........................................................................................................23 IV. Evaluation Design and Methodology.......................................................................................24 Site Selection.......................................................................................................................24 Data Collection....................................................................................................................24 Evaluation Designs..............................................................................................................24 Victim Recontact Evaluation Design..............................................................................24 Police-Community Newsletter Evaluation Design...........................................................25 Area-wide Evaluation Designs........................................................................................25 Analysis...............................................................................................................................26 V. Effects Police-Community Newsletters: Houston and Newark..........................................................31 Community Organizing Response Team: Houston................................................................31 Citizen Contact Patrol: Houston...........................................................................................31 Police Community Station: Houston....................................................................................32 Recontacting Victims: Houston............................................................................................32 Reducing “Signs of Crime”: Newark......................................................................................32 Coordinated Community Policing Program: Newark.............................................................33 _____________________________________________________________________________________________ Police Foundation 3 Reducing Fear of Crime in Houston and Newark VI. Discussion..............................................................................................................................35 VII. Implications............................................................................................................................37 Availability of Reports.............................................................................................................39 Selected Bibliography.............................................................................................................40 Houston and Newark Staff Members.......................................................................................41 _____________________________________________________________________________________________ Police Foundation 4 Reducing Fear of Crime in Houston and Newark FOREWORD Every police executive knows that police officers spend most of their time not chasing or arresting suspects but talking to people. The research summarized in this report indicates that if officers work harder at talking and listening to citizens, they can reduce the fear of crime and, in some cases, even crime itself. The pervasive fear of crime is a threat to organized society—it makes citizens suspicious of one another, erodes the sense of community upon which a decent neighborhood life depends, and weakens the confidence of the people in their government. Though the level of fear is often way out of proportion to the actual risk of victimization, it should not for this reason be dismissed as groundless or hysterical. Nor can fear be reduced by simply telling people that they have an exaggerated notion of the risks they face. When one quarter of all American households are touched by crime in a typical year, people are going to believe their own experiences or the testimony of their neighbors before they accept the reassurances of public officials, especially if those people live in neighborhoods blighted by physical decay or juvenile rowdiness. For a long time, many police executives handled fear by either minimizing the amount of reported crime or concentrating their department’s efforts on solving crimes and arresting criminals. Some executives worried that telling people too much about crime in their neighborhood would only make matters worse by sharpening anxieties or leading to unreasonable demands for increased police services. Slowly, those approaches have begun to change. The exclusive reliance on motorized patrol has given way in some cities to a greater use of foot patrol. The rush during the 1950s to centralize police operations in a downtown headquarters has been slowed, and a fresh look has been taken at the possible value of neighborhood or precinct police stations. In response to the urban tensions and riots of the 1960s, cultivating better community relations became more important. What has been lacking in all this are well-tested ideas about what specific steps will actually reduce the fear of crime and improve police-neighborhood relations. Many of the popular ideas, such as assigning officers to meet monthly with neighborhood organizations, never had much empirical support; they were adopted because somebody had a hunch that they might meet a pressing need. In cooperation with the police departments in Houston and Newark, and with the active support of the National Institute of Justice, the Police Foundation has put to the test a variety of methods intended to reduce fear, improve the quality of neighborhood life, and increase popular satisfaction with police services. The report that follows summarizes those experiments; fuller, more technical reports are available from the foundation. Among the concrete lessons of those experiments are these: • In Houston, where the population is growing rapidly, densities are low, and neighborhoods are new, opening a neighborhood police station, contacting the citizens about their problems, and stimulating the formation of neighborhood organizations where none had existed can help reduce the fear of crime and even reduce the actual level of victimization. • The value of these organizing and communicating efforts seems to be greatest for white, middle-class homeowners and least for black renters. This suggests that not every strategy works equally well for every group. _____________________________________________________________________________________________ Police Foundation 5 Reducing Fear of Crime in Houston and Newark • In an older, more disadvantaged city such as Newark, many of the same steps— including opening a storefront police office and directing the police to make contacts with citizens in their homes—also had beneficial effects, especially when they were supplemented with aggressive efforts to enforce the law and maintain order in those neighborhoods. • Police officers often resist being assigned to making citizen contacts, running a storefront office, or organizing neighborhood meetings (“it’s not real police work”), but in Houston and Newark that initial resistance soon gave way to enthusiasm when the officers realized how receptive the citizens were, how much information the police thereby obtained, and how appreciative most people were for the attention paid to their problems. • Helping citizens reduce their fear of crime in ways that improve satisfaction with police services requires a proactive strategy—it is not enough to respond to spontaneous requests for information, attend the meetings of group already organized, or wait for citizens to come to headquarters. There must be a positive outreach program designed to create interest, meetings, and inquiries. • Like all aspects of good police work, the community-contact strategy requires careful planning, training, and supervision and the recruitment of able personnel. • Learning what works in any city requires a commitment to the experimental method, in which a new tactic is tried in a way that permits a systematic, unbiased evaluation of its outcome. The Police Foundation welcomes comments on this and its many other reports and stands ready to supply, within the limits of its resources, advice and technical assistance in the evaluation and implementation of new programs. James Q. Wilson Chairman of the Board Police Foundation _____________________________________________________________________________________________ Police Foundation 6 Reducing Fear of Crime in Houston and Newark PREFACE As a rookie police officer in Oakland, California, I learned a fact of urban life that frequently escapes the attention of Americans who are fortunate to live in areas that are relatively without crime. I learned that the vast majority of citizens in crime-ridden parts of the city are law-abiding and, like their fellow citizens, want to be left to live their lives free of the effects of crime. But as have other police officers, I learned also that over time the prevalence of crime in a neighborhood blunts its vitality, withers its spirit, and infuses those law-abiding citizens unable to flee the neighborhood with a sense of futility and fear. However proficient the police are in arresting criminals who prey on a neighborhood, there remains in relatively high-crime areas a fear of crime that develops as families and individuals come to believe that they are alone in dealing with the aura of criminal activity and disorder that surrounds them. As recent research has shown, the rate of actual crime in a neighborhood and the level of fear of crime are not necessarily in tandem. Fear of crime may outstrip in its intensity the reality of actual crime victimization rates. If all the police do, however successfully, is respond to individual criminal incidents, the fear of crime which pervades a neighborhood is seldom assuaged. Fear of crime has very practical consequences. It tends to imprison citizens within their homes, dry up commercial activity in a neighborhood, isolate residents from each other, and abandon the streets to the very sort of criminal and disorderly behavior which feeds fear of crime initially. In response, the efforts of the nation’s police departments to reduce the fear of crime has tended to be sporadic, piece meal, and unevaluated. No one could say for certain what approaches worked and, as important, what strategies did not work and were a waste of time and money. Indeed, before the study reported here, there had been no attempt to test in a comprehensive way what the police can do, beyond their traditional law enforcement activities, to reduce citizen fear of crime in city neighborhoods. In Houston and Newark, with the support of the National Institute of Justice, Police Foundation researchers set out to evaluate in a systematic way a series of fear-reduction strategies. The Institute set to important conditions: • That the strategies would be homegrown, not imported. The police in Houston and Newark would implement fear-reduction strategies which local officers had a hand in devising and which reflected local conditions. And, • Most important, that the strategies be implemented without Federal subsidies, and without any increase in local police department budgets. The strategies were to be tried within the framework of existing police resources because most police departments today operate under stringent fiscal restraints. If the lessons learned in Houston and Newark were to be relevant for other urban police agencies, their price tag had to fit the realities of current police budgets. At the National Institute of Justice, we believe one of the most important uses for research money is to test what criminal justice agencies can accomplish within the boundaries of their available resources. The results of evaluations of the Houston and Newark strategies are very encouraging. By one set of measures or another, they show, for example, that in Newark a coordinated community policing effort can reduce fear of personal _____________________________________________________________________________________________ Police Foundation 7 Reducing Fear of Crime in Houston and Newark victimization and the perception of social disorder and property crime in a neighborhood and increase citizen satisfaction with the area. In Houston, innovations similar to those made in Newark have correspondingly beneficial effects, although the two cities differ markedly in many ways. The overall lesson of the research in Houston and Newark is that if police departments take the initiative in adapting to local conditions the successful strategies noted in this report, they can have an effect in reducing the fear of crime where it is prevalent. Significantly, they can take this initiative without increasing their budgets. In terms of money outlays, the strategies are cost effective. To work, they require that police administrators and managers decide that their officers will listen to, and work with, law-abiding citizens in efforts to reduce the fear of crime that plagues too many urban neighborhoods. I am particularly pleased that this project exemplifies the primary mission of the National Institute of Justice: to sponsor research that has particular value for improving the criminal justice system. Houston and Newark are continuing the most successful aspects of the fear reduction program, and we are now beginning to replicate those aspects in other sites. In the meantime, I strongly encourage other jurisdictions to follow the lead of these two departments. James K. Stewart Director National Institute of Justice _____________________________________________________________________________________________ Police Foundation 8 Reducing Fear of Crime in Houston and Newark A NOTE FOR POLICE ADMINISTRATORS Houston and Newark, vastly different in many ways, are similar in one respect. Both cities have limited police resources available to meet increasing demands. Houston, spread out over 565 square miles, has been growing at such a rapid pace that police resources are stretched to the limit. In Newark, police resources are diminishing due to a shrinking tax base and agency cutbacks. Like many of the nation’s police departments, the departments in Houston and Newark face the troubling equation of increased demands and reduced or limited resources. This problem has stimulated the adoption of several “cutback management” approaches to conserve police resources. Some of these approaches, including differential response to calls for police service and screening cases to be investigated, are cost effective ways of achieving our goals without sacrificing the services we provide. Other approaches, such as layoffs and reductions in foot patrol and other services, run the risk of isolating the police from large segments of the community. The findings from this study clearly illustrate the value of having the police contact citizens to involve them in resolving problems associated with crime and the fear of crime in city neighborhoods. But, as every police executive knows, police departments frequently resist attempts to change traditional police practices. Thus, police administrators who want to adopt and adapt the fear-reduction strategies used in Houston and Newark are going to have to persuade participating police officers of their value. We believe the evidence in this report will be very useful in the effort. Certainly, the results of these experiments suggest several changes in current police practices, principal among them: • Some of the time of beat officers should be reserved for making contacts with citizens so that officers can become more aware not only of specific problems in the neighborhood, but also of the community’s perceptions of crime and disorder. • Officers selected to become involved in fear-reduction strategies must be screened to ensure that they are community service-oriented, adaptable to changing conditions, and self-motivated. From a management perspective, this means beat personnel may have to be shifted. The goal here should be to increase both the quantity and quality of police-citizen contacts. • Police-citizen contacts, and follow-through activities leading from them, must be well documented to ensure that officers can execute appropriate responses. • When appropriate, police executives should consider establishing door-to-door contact, community organizing, and police storefront operations. The study shows that these operations can reduce the physical and psychological distance between police and a neighborhood. The results of the fear reduction project show that innovative programs can be developed that reduce the levels of fear within the community and raise citizen satisfaction with the police. These are positive, necessary goals to guide the delivery of basic police services. And they are relatively inexpensive and easy to implement. We recommend that police executives in the nation’s cities review carefully the findings of this study. We were so impressed by these findings that we have maintained these programs in our departments after the evaluation was completed. Lee B. Brown Hubert Williams Police Chief President, Police Foundation Houston, Texas Former Police Director, Newark, New Jersey _____________________________________________________________________________________________ Police Foundation 9 Reducing Fear of Crime in Houston and Newark AUTHORS’ ACKNOWLEDGEMENTS This study, funded by the National Institute of Justice, is the product of the efforts of many people whose contributions we gratefully acknowledge. Foremost, this project is attributable to the concern expressed by the director of the National Institute of Justice, James K. (Chips) Stewart, that America’s police give increased attention to the general quality of life of the citizens they serve. Only due to his advocacy did this enterprise begin; only thanks to his support was it completed so successfully. For his persistent encouragement, we are grateful. The cooperation and support provided by the Houston and Newark police departments and their chief executives, Lee P. Brown and Hubert Williams, made this project possible. Their willingness to experiment proved once again that far-sighted police administrators can contribute significantly to the development of new knowledge about policing. We owe a special debt to the staffs of the Houston and Newark police departments who worked on various aspects of the project. Their names are noted at the end of this report. At various stages in the design and implementation of this project, we shared our ideas and received advice from representatives of the United States Conference of Mayors, the National Organization of Black Law Enforcement Executives, the National Sheriffs’ Association, and the Police Executive Research Forum. We gratefully acknowledge their assistance. We owe special thanks to the following persons who have reviewed drafts of the many reports produced by this project and, in the process, made them much better than they otherwise would have been: Professor Richard Berk, Department of Sociology, University of California at Santa Barbara; Professor Peter Rossi, Social and Demographic Research Institute, University of Massachusetts; and Professor Albert J. Reiss, Department of Sociology, Yale University. We also appreciate the assistance and advice provided by the following persons during the planning stage of the various programs: Professor David Bayley, Graduate School of International Studies, University of Denver; George L. Kelling, Research Fellow, John F. Kennedy School of Government, Harvard University; Professor Paul J. Lavrakas, Center for Urban Affairs, Northwestern University; and Professor Jerome Skolnick, The Center for Study of Law and Society, University of California at Berkeley. Professor Richard McCleary, Department of Sociology, University of New Mexico, provided valuable technical assistance in the time series analyses of recorded crime data. The following Police Foundation staff members gave unstintingly of their time and talents: Sampson O. Annan, survey research director; Virginia Burke, administrative assistant; Gretchen Eckman, Houston process evaluator; Elizabeth Enright, Newark process evaluator; and Douglas Irr, research assistant. At the National Institute of Justice, we profited from the encouragement and support of William Saulsbury, the original project monitor, and Larry Bennett who was monitor as it neared completion. Thanks also to Gil Kerlikowske, who assisted Mr. Bennett in this task. Patrick V. Murphy, the president of the Police Foundation at the time this study began, and Hubert Williams, foundation president as this project was being concluded, gave us direction and reassurance when we needed it most. As the length of these acknowledgements indicates, to the extent that this enormous project was successful, there are many who deserve the credit. Any errors or omissions are our responsibility, and ours alone. Antony M. Pate Wesley G. Skogan Mary Ann Wycoff Lawrence W. Sherman _____________________________________________________________________________________________ Police Foundation 10 Reducing Fear of Crime in Houston and Newark