96-1022 �� �' � !�' � (��, c 1� � Councit File #
-� �C� - I e�.a.
�°-�°` � � `� �'�`�'� �-.. Green Sheet#���c�
OLUTION
S , ESOTA ag
Presented By:
Referred To: Committee:Date:
1 WHEREAS,the National of Justice (NIJ)has solicited a Request for Proposal (RFP), and
2
3 WHEREAS,the City of Saint Paul via the Saint Paul Police Department(SPPD) is in agreement to access the
4 funding of the solicitation of the NIJ, and
5
6 WHEREAS, Sergeant John Harrington has a proposal to analyze and evaluate the SPPD's interaction and
7 effectiveness with urban gangs in the City of Saint Paul, and
8
9 WHEREAS, the cost of implementing Sergeant Harrington's research is $59,200 of which NIJ will be asked
10 to award the SPPD $49,300, and
11
12 WHEREAS, Sergeant Harrington has already secured $9,900 from the Kellogg Foundation, which will fulfill the
13 match requirement of the NIJ grant, and
14
15 THEREFORE,BE IT RESOLVED,that the City of Saint Paul allow the SPPD to submit the grant application
16 to the NIJ for an evaluation of COP's Effect on Urban Youth Gangs.
17
18
19
20
21
22
23
24
25
26
27
28
29
30
31
32
33
Yeas Nays Absent Requested by Department of:
eiekey
Bostrom PoliCe
Guerin ,�'
Harris
Meyard By: .•�.
Rettman
rhune Form ed by C' ney:
O (
Adopted by Council: Date: (�, a.� � By: � �'-C_y
Adop io Certified by Council Secre ary:
By� a
Approve by Mayo Date: (�I� q� Approved by Mayor for Submission to Coua►cil:
!
By: �- c� �o� By: `��c
C072696c
�
� 39 � 5�
DEPlVMi1�NTlOFFICE/COUNCIL DATE INITIATED q r �
Saint Paul Police Department 7/29/96 GREEN SHEET l�O— ��a
INITIAL/DATE INITIAUDATE
CONTACT PERSON 6 PHONE DEPARTMENT OIRECTOR CITY COUNCIL
Chief Finne ASSIGN ATTORNEY CITYCLERK
NUMBERFOR
MUST BE ON COUNCIL A(3ENDA BY(DATE) ROUTING BUDGET DiRECTOR �FIN.&MOT.SERVICES DIR.
ORDER MAYOR(OR ASSISTANn �
As soon as Possible
TOTAL#OF SICIi NATURE PACiES (CLIP ALL LOCATIONS FOR 31(�1NATURE)
ACTION RE�UE$TLD:
Permission to apply for a National Institute of Justice (NIJ) solicitati��G �7 ��9�1
RECOMMENDATIONS:Approvs(A)or Reject(R) pER80NAL SERVICE CONTRACT8 MUST ANSWER TNE FOLLOWINO GUESTIONS:
_ PLANNINO COMMISSIQN _ CIVIL SERVICE COMMISSION �• H8S thiS p9�8011/FIff11 9V9�WO�k9d u�d9f fl COIItfBCt f0�thiS dep8rtrt1911t?
_CIB COMM177EE _ YES NO
2. Has this person/firm ever been a city employee?
_STAFF — YES NO
_DtSTRIC7 COURT — 3. Does this person/firm possess a skill not normall
y possessed by any current city employee?
SUPPORTS WHICH COUNCIL OB,IECTIVE4 YES NO
Explaln ell yss anawen on ssparate sheet and attach to yresn shest
INITIATINO PROBLEM,138UE,OPPORTUNITY(Who,Whet,When,Where,Why):
The City of Saint Paul via the Saint Paul POlice Department wishes to submit an application
for an NIJ Solicitation entitled Community Policing Strategies: An Evaluation of COP's
Effect on Urban Youth Gangs. Sergeant John Harrington will analyze and evaluate the Saint
Paul Police Department's interaction and effectiveness with urban gangs in the City of
Saint Paul.
ADVANTAGES IF APPROVED:
The City of Saint Paul will have knowledge of effectiveness in dealing with urban gangs
when the grant is implemented.
DISADVANTAGES IF APPROVED: ��
None. ,���
qv� os �9s
C/ry .
arro
RNF
D�SADVANTACiE3 IF NOT APPROVED:
The City of Saint Paul will not have as much knowledge of effectiveness in dealing with
urban gangs if the grant submission is not granted.
�tmC� R�e�r (�p'
. AUG 0 9 1996
TOTAL AMOUNT OF TRANSACTION S ��i9�3OA COST/REVENUE BUDGETED(CIRCLE ONE) YES NO
FUNDIWGSOURCE Natit�nal Tnct3tute �lf d1�6��E�CTIVITYNUMBER
FINANCIAL INFORIVfATION:(EXPLAIN)
APPLICATION FOR OMB Approvai No.0348-0043
2.OATE SUBMITTED Applicant Identi(ier
FEDE�AL ASSISTANCE 1 Q (o_ (C5 a--
i. TYPE OF SUBMISSION: 3.OATE RECEIVED BY STATE State AppliCation Identifier
Application Preapplication
❑ Construction � Construction
a DA7E RECEIVED BY FEDERAL AGENCY Federal Identi(ier
Non-Construction � Non-Construction
5. APPIICANT INFORMATION �
Legal Name: Organizational Unit:
Address(give city,counry,state,and zip code): Name and telephone number of Ihe person to be contacted on matters involving
100 East Eleventh Street cnisaPPiica�ion�y�veareacode�
Saint Paul, MN 55101 Sergeant John tiarrington
County of Ramsey (612) 292-3613
6. EMPLOYER�DENTIFICATION NUMBER(EIN): 7. TYPE OF APPLICANT:(entarappropriate/etterin boxJ
(� _ ��� A. State H. Independent School Dist.
Lr�.J 1 I �z_ __Q _Q_ S 5 2 1 B. Counly 1. State Controlled Institution oi Higher Leaming
6. TYPE oF APPLICATION: C. Municipal J. Private University
D. Township K. Indian Tribe
� New ❑ Continuation ❑ Revision E. Interstate L. Individual
F. Intermunidpal M. Profit Organization
If Revision,enter appropriate lener(s)in box(es): � � G. Special District N. Other(Specity):
A. Increase Award 8. Decrease Award C. Increase Duration
D. Decrease Duration Other(specilyJ: 9. NAME OF FEDERAL AGENCY:
HUD
10. CATALOG OF FEDERAL DOMESTIC 11. DESCfiIPTIVETITLEOF APPLICANT'S PROJECT:
ASSISTANCE NUMBER: •
Community Policing Strategies: An
Tir�E:NIJ Solicitation: Research and Evaluat on Evaluation of COP's Effect on Urban
Youth Gangs
12. AREAS AFFECTEO BY PROJECT(cities,counties,states,etc.J:
Ramsey County
City of Saint Paul, MN
13. PROPOSED PROJECT: 14. CONGRESSIONAL DISTRICTSOF:
Start Date Ending Date a. Applicant ` b. Project
Minnesota, Fourth District Minnesota, Fourth District
15. ESTIMATED FUNOING: 16. IS APPLICATION SUBJECTTO REVIEW BY STATE EXECUTIVE ORDER 12372 PROCESS?
a. Federal $ .0o a. YES. THIS PREAPPLICATION/APPLICATION WAS MADE AVAILABLE TO THE
�49�3OO STATE EXECUTIVE ORDER 12372 PROCESS FOR REVIEW ON:
b. Applicant $ •�� DATE
c. State $ .00
b NO. � PROGRAM IS NOT COVERED BY E.0.12372
d. Local $ .00 �
OR PROGRAM HAS NOT BEEN SELECTED BY STATE FOR REVIEW
e. Oiher $ .00
9,900 (Kellogg Fd n)
I. Program Income $ ,pp 17. ISTHE APPLICANT DEIINOUENT ON ANY FEDERAL DEBT?
g. TOTAL $ � Yes II"Yes,"attach an explanation. � No
.00
$59,200
18 TO THE BEST OF MY KNOWLEDGE AND BEI.IEF,ALl DATA IN THIS APPLICATIONlPREAPPLICATION ARE TRUE AND CORRECT,THE DOCUMENT HAS BEEfY DULY
AUTHORIZED BY THE GOVERNING BODY OF THE APPLICANT AND THE APPLICANT WILL COMPLY WITH THE ATTACHED ASSURANCES IF THE ASSISTANCE IS AWARDED
a. Typed Name of Authorized Representative b. Tide c. Telephone number
William K. Fin e Chief of Police (612)292-3588
d. Si nature Authori d Rep sen tive � e. Date Signed
' 7/19/96
Previous Editions Not Usa e Standard Form 424 (REV 4 88)
Prescribed by OMB Circular A-i o2
' Or.to APac:O�a_`.:, ' _ . s;�
EXP�P.ES ',3'�5^
� `
ASSURANCES -/ �- j �3a�-�
The Applicant hereby assures and certifies compliance with all Federal statutes, regulations,policies,guidelines and requirements,
including OMB Circulars No.A-21,A-110,A-122,A-128,A-87;E.O. 12372 and Uniform Administrative Requirements for Grants and
Cooperative Agreements-28 CFR,Part 66,Common Rule,that govern the application,acceptance and use of Federal funds for this
federally-assisted project. Also the Applicant assures and certifies that:
1. It possesses legal authority to apply for the grant; that a 10. It will assist the Federal grantor agency in its compliance with
resolution,motion or similar action has been dufy adopted or Section 106 of the National Histonc Preservation Act of 1966
passed as an official act of the applicant's governing body, as amended (16 USC 470), Executive Order t 1593, and the
authorizing the filing of the application, including all under- Archeological and Historical Preservation Act of 1966 (16
standing s and assurances contained therein, and directing USC 569a-1 et seq.) by(a)consulting with the State Historic
and authorizing the person identified as the officiai represen- Preservation Officer on the conduct of investig ations, as
tative of the applicant to act in connection with the application necessary,to identify properties listed in or eligible for inclu-
and to provide such additional information as may be re- sion in the National Register of Historic Places that are
quired. subject to adverse effects (see 36 CFR Part 800,8) by the
activity, and notifying the Federal grantor agency of the
2. It will comply with requirements of the provisions of the existence of any such Properties, and by (b) complying with
Uniform Relocation Assistance and Real Property Acquisi- all requirements established by the Federal grantor a�ency to
tions Act of 1970 P.L. 91-646) which provides for fair and avoid or mitigate adverse effects upon such properties.
equitable treatment of persons displaced as a result of Fed-
eral and federally-assisted programs. 1 1. It will comply,and assure the compliance of all its subgrantees
and contractors,with the applicable provisions of Title I of the
3. It will complywith provisions of Federal law which limit certain Omnibus Crime Control and Safe Streets Act of 1968, as
political actiwties of employees of a State or local unit of amended, the Juvenile Justice and Delinquency Prevention
government whose principal employment is in connection Act, or the Victims of Crime Act, as appropriate: the provi-
with an activity financed in whole or in part by Federal grants. sions of the current edition of the Office of Justice Programs
(5 USC 1501, et seq.) Financial and Administrative Guide for Grants, M7100.1;and
all other applicable Federal laws,orders,circulars, or regula-
4. It will comply with the minimum wage and maximum hours tions.
provisions of the Federal Fair Labor Standards Act if appli-
cable. 12. It will comply with the provisions of 28 CFR applicable to grants
and coop erative agreements including Part 18,Administrative
5. It will establish safeguards to prohibit employees from using Review Procedure; Part 20, Criminal Justice Information Sys�
their positions for a purpose that is or give the appearance of tems; Part 22, Confidentiality of Identifiable Research and
being motivated by a desire for private gain tor themselves or Statistical Information;Part 23, Criminal Intellig ence Systems
others, particularly those with whom they have family, busi- Operating Policies; Part 30, Intergovernmental Review of De
ness, or other ties. partment of Justice Programs and Activities; Part 42, Nondis
crimination/Equal Employment Opportunity Policies and Pro-
6. It will give the sponsoring agency or the Comptroller General, cedures; Part 61, Procedures for Implementing the National
through any authorized representative,access to and the right Environmental Policy Act; Part 63, Floodplain Management
to examine all records,books,papers,or documents related to and Wetland Protection Procedures;and Federal laws or regu-
the grant. lations applicable to Federal Assistance Programs.
7. It will comply with all requirements imposed by the Federal 13. It will comply, and all its contractors will comply, with the
Sponsoring agency concerning special requirements of law, nondiscrimination requirements of the Omnibus Cnme Con-
program requirements,and other administrative requirements. trol and Safe Streets Act of 1968, as amended, 42 USC
3789(d), or Victims of Crime Act (as approp riate); Title VI of
8. It will insure that the facilities under its ownership, lease or the Civil Rights Act of 1964, as amended;Section 504 of the
supervision which shal� be utilized in the accomplishment of Rehabilitation Act of 1973,as amended;Subtitle A, Title II ot
the pro�ect are not listed in the Environmental protection the Americans With Disabilities Act(ADA) (1990):Title IX of
Agency s (EPA-list of Violating Facilities and that it witl notify the Education Amendments of 1972; the Age Discrimination
the Federal grantor agency of the receipt of any communica- Act of 1975;Department of Justice Non-Discnmination Regu-
tion from the Director of the EPA Office of Federal Activities tations, 28 CFR Part 42, Subparts C, D, E, and G; and
indicating that a facility to be used in the project is under Department of Justice regulations on disabi�ity discrimina-
consideration for listing by the EPA. tion, 28 CFR Part 35 and Part 39.
9. It will comply with the flood insurance purchase requirements 14. In the event a Federal or State court or Federal or State
of Section 102(a) of the Flood Disaster Protection Act of administrative agency makes a finding of discrimination after
1973, Public Law 93-234, 87 Stat. 975, approved December a due process hearing on the grounds of race, color,religion.
31, 1976. Section 102(a) requires, on and after March 2, national origin,sex,or disability against a recipient of funds.
1975, the purchase of flood insurance in communities where the recipient will forward a copy of the finding to the Office for
such insurance is available as a condition for the receipt of Civil Rights, Office of Justice Programs.
any Federal financial assistance for construction or acquisi-
tion purposes for use in any area that had been identified by 15. It will provide an Equal Employment Opportunity Program i`
the Secretary of the Department of Housing and Urban Devel- required to maintain one,where the application is for$SOO,OOC
opment as an area hav�ng special flood hazards.The phrase � or more.
"Federal financial assistance" includes any form of loan,
grant, guaranty, insurance payment, rebate, subsidy, disas- 16. It will comply with the provisions of the Coastal Barrier
ter assistance loa nt, or any other form of direct or Resources Act(P.L.97-348)dated October 19, 1982(16 USC
indirect Federal sistance. 3501 et seq.) which prohibits the expenditure of most neN.
Federal funds within the units of the Coas:al Barrier Re
sources System.
, July 19, 1996
Signature Date
'_�
OJP FORM 4000/3(Rev 1•93)PREVIOUS EDITIONS A ETE.
ATTACHMENT TO SF•42a
G�l3l�����HCiVAI!:O.tt21 c,;Ba
' � [Xf Ii;ES 5�9A
�1 �- 1 c��aa-
JBud�et �Detai� Woxkshee�
r1. PL'I�SUII�ICI - Ll�l 1;:1C�1 �)Oti1U011 �ly IIIIC �I1CI I1�1111C Of C;I11�I0)�ee, if available. SI1CW IIIC �11111U:1I
�alary rate and the percenta�;� of tiine to be d�votc.�,d,�to the project. Compensation paid for employeeti
en�a�ed in �rant activities must be �onsistent ���itFrthat paid for similar work withiii the applicant
or�anization.
N�ime/('usitiun (;umpulatiun C;ust
Sergeant John Harrington 25� FTE at $44,000 base $11,000
�
I
TOTAL�1�,000
13. I�ringC Benefit.s - i=rin�e benefits should be based on actual known costs or an establi�hed
formula. Frin�e benefits are for the per�onnel listed in bud�et category (A) and only for the
percenta�e of time devoted to the proje�t.
Nan�e/Position Computation C'ust
Sgt. John Harrington City of St.Paul Fringe Rate 34' $3,700
'CO'1'AI, �3,700
o�a FoR�n�,sor�ls-ss)
, ,
C. 'l�ra�'CI - Itemize tra�-el expcnses of project personne( by purpose (e.g., staff to U•:1ll1111b, field
inter�iews, advisory group meetin�, etc.). Show cJ�e basis of computation (e.g., six people to 3-day
training at �X airfare, $X ]odging, �X subsistence). In training projects, trave] and meals for trainees
tihould be listed separately. Show the number of trainees and the unit costs involved. Identify the
lo�ation of travel, if known. ,�:
` �;-_
1'urpuse uf 1'ravel Location ICem Curnputation Cust
Consultation Chicago, IL Travel Expenses $1,500
Consultation Lancing, MI Travel Expenses $2,000
�roTA�$3,soo
D. Equipment- List non-expendable items that are to be purchased. 1�'on-expendable equipment
is tangible property having a useful life of nlore than two years and an acquisition cost of$5,000 or
more per unit. Expendable items should be included either in the"supplies" category or in the
"Otl�er"category. Applicants should analyze the cost benefits of purchasing versus leasing
eyuiprnent, especially high cost items and those subject ro rapid technical advances. Rented or leased
equipment costs should be listed in the"Contractual" category. Explain how the equipment is
neces.ary for the success of the project. Attach a narrative describing the procurement method to be
used.
Item Computation Cost
IBM- Thinkpad laptop computer University rate $3,500
TOTAL$3��oo
�
1
� a � - lo� �
I?. Suppltes - Litic ice�ns by type (office tiupplies, posta�:e, U-aining materials, copyin� p�rcr, and
expendable eyuipmcnt items co.tin3 less than �S,U00, such as books, hand-held tape recorde.rs) ancl
show the basis for computation. Generally, supplies include any materials that are expendable nr
consumed during the course of the proje�•t.
Supp(y Itcros . C:o�njivtatiun (:c�sL
Office Supplies $600
Reference Books and Copying $500
DAT Tapes 200 1 hour tapes $5.00 @ $1,000
DAT Recorders $250 @ $500
T01'AL$2,600
�: Construetion -As a rule, construction costs are not allowable. In some cases, nunor repairs or
renovations may be allowable. Check with the prosram office before budgeting funds in this
�ate�ory.
Purpose Descriptiun uf�'�'vrk C:ust
Not Applicable
'1'U'1'AL
G. Consultants/Contracts
Cu»s•r�lla►1t Fees: For each consultant enter the na�»e, if kno��n, servie:e to be provided, hourly or
daily fee (;{-hour day), and estimated time on the project. Consultant fees in excess of�15O per day
reyuire additional justification. -
..
, ..
�-
;�'atne uf Consultant Ser��ice.Pro�•ided `� Cumputatiun Cust
MN Community Policing Inst. Community Policing .
Evaluation and Historical
Interviewing. $5,000
Midwest Gang Investigators Gang intervention and
Association Prevention evaluation
• and historical interviewing $5,000
Hand in Hand Inc. Gang members interview $7,000
Subtorn! �17,000
Cunsc�llaiit�xpenses: List all expenses to be paid from the grant to the individual consultants in
addition to their fees (i.e., travel, meals, lodging, etc.)
Item Location Computatiun Cust
Travel expenses 2,000
Subtotal� 2�000
Contracls: Provide a description of the product or ser��ire to be procured by contract a»d an estirnate
of the c:ost. Applicsnts are encouraged to promote free and open competition in awarding convacts.
A separate justification must be provided for sole source rontra�ts in excess of$100,000.
Item Cost
Suhtota! $19,000
T01'AL
�!�- 1��. �..
(H) ntlie�� COStS - LIJi ill'i11J �C.�., rent, reproduction, telephone,janitorial or security serviccs,
and in•����ti�ative or confidential funcis) by major type and the basis of the computation. 1=or exarnpie,
provide the syuare foota��e and the cost per square foot for rent, or provide a monthly rental c:ost and
how many months to rent.
Description Compu{ation (.:ust
Clerical Support 200 hours 9.00@ $1,80
Accounting and fiscal audit $2,00
Research Oversight and data processing suppdrt 2,200
TOTAL �6,000
(I) I17direCt COStS - Indirect �osts are allowed only if the applicant has a Federally approved
indirect cost rate. A copy of ti�e rate approval, (a fully executed, ne�otiated asreement), must be
attached. If the applicant does not ha�le an approved rate, one can be requested by contacting the
applicant's co�nizant Federal agency, which will review all documentation and approve a rate for the
applicant or�anization, or if the applicant's accounring system perntits, costs may be allocated in the
direct cost cate�ories. �
Description Computation Cust
N/A
TOTAL
13UCIL;Ct S�UI11I11:1Cy�- ���hen you ha��e completed the bud�_ct ���orksheet, U:insfcr the total� for ea�h
�ate�c�ry tu the spaceti below. Compute the tot�l direct co:ts and the total projc�t costs. Indi�ate the
:imount of f=�der;il funds reyuested and the :imount of non-Feder:ii twids thc�t ���ill lupport the project.
Iiudget Category ;�tnaunt
� .:9
a7�
A. PCrsUnncl �1.1,000 ;
$3,700
Ii. I�rin�;e �3enefits
C. "I'ravc:l $3,500
D. Equipment �� 5��
. •
I?. Supplies $2,600
F. C;unstruction x fA
(:. Cunsultants/Contracts $19,000
H. ()tl�er $6,000
"Tutal Direct Costs $49,300
I. Indirect Costs
$59,200
"TU"I'AL PROJECT COSTS
N'ederal Reyuest $49,300
$9,900
Nun-l�edcral Amount
1 � � lc� � �
BUDGET NARRATIVE
Section A Personnel S11, 000
Sergeant John Harrington is employed full-time with the St.Paul
Police department supervising the School liaison program, Truancy
Center and DARE programs. As this will increase his workload by
approximately 25� at the $44, 000 annual salary rate for Police
Sergeant.
Section B Fringe Benefits $ 3,700
The fringe benefit rate for the city of St.Paul is 34 %.
Section C Travel $ 3,500
Sergeant Harrington will consult with Professor Irving Spergel at
the University of Chicago and visit the gang intervention project
in order to assist in the development of a more rigorous evaluation
criteria.
Sergeant Harrington will consult with Bonnie Bucquerouz at the
National Center for Community Policing at Michigan State in order
to assist in the development of a more rigorous evaluation
criteria.
Section D Equipment $ 3,500
Part-time faculty members receive office space but are not provided
with data processing equipment. With the various sites that the
project will be dependant on for qualitative data collection, a
lap-top computer would give Sergeant Harrington the optimum
flexibility in gathering the data needed for the evaluation. An
estimate of an IBM Think-pad is S3, 300 at the Metropolitan State
University rate. This includes a software package, case and
diskette.
Section E Supplies $ 2, 600
Supplies will be needed in order for all members of the three
research teams to operate. In addition, Hand in Hand, Inc. will
require 1-2 Digital Audio Tapes (DAT)� per interview at $5 per tape.
An additional tape recorder will also be needed at $250 each.
Research team leaders have identified several publications which
would facilitate setting up and completing the analysis.
Section G Consultant/Contracts $19, 000.00
In order to insure impartiality and yet utilize local experts,
consultant contracts will be entered into with three agencies that
the coordinator has worked with in the past.
The Minnesota Community Policing Institute is a program sponsored
through the League of Minnesota Cities. The Institute has a
trained group of technical advisors from law enforcement, social
� � � �- ����
work and community organizations. The director of the Institute is
Linda Miller and she and members of the Institute will be engaged
as consultants conducting interview with community policing policy
makers and operational personnel and conducting analysis of
archival documents for this project.
The Midwest Gang Investigator Association is a private non-profit
group whose mission is to collect, disseminate and assist law
enforcement and criminal justice practitioners with gang related
cases and problems. The institute has staff and members from all
over the Midwest region including, Illinois, Wisconsin, Iowa the
Dakota s and Minnesota. Members come from a wide range of
backgrounds including police, corrections, education, and academia.
The president of the association is Sgt. Joe Mollner and he and the
members of the association will be engaged as consultants
interviewing gang specialists, analyzing the gang oral histories
and interpreting data for this project.
Hand in Hand Inc. Is a private non-profit group whose mission is to
conduct youth related research through the vehicle of oral
histories and other therapeutic modalities. Hand in Hand's staff
and members that have years of experience working with youths from
gangs in therapy ,diversion and correctional settings. The
president of the association is Kathleen Caveat and she and her
staff will be engaged as consultants collecting the oral histories
from gang members for this project.
The consultants will be completing most of there work in the
St.Paul/Minneapolis area , but some travel within the Midwest area
is expected in order to complete interviews with individuals who
have retired.
SECTION H OTHER COSTS $6, 000
The St.Paul Police department will incur administrative costs in
undertaking this research, including:
Administrative- Research and Development will be involved in the
oversight of the research effort and will also be involved
providing clerical support and data processing support for the
project. In addition the accounting and fiscal management of this
research will be completed by the police accounting unit which will
also increase their workload.
Matching funds-
A $9,900 grant from the Kellogg Foundation has been applied for and
approved that will provide for office and meeting space, student
workers and a limited amount of resource materials designed to
facilitate anti-gang activities.
U.S. DEPARTMENT OF JUSTICE
�
� OFFICE OF JUSTICE PROGRAMS
OFFICE OF THE COMPTROLLER � ( T 1 �a.�_
�o f
CERTIFICATIONS REGARDING LOBBYING; DEBARMENT, SUSPENSION AND
OTHER RESPONSIBILITY MATTERS; AND DRUG-FREE WORKPLACE REQUIREMENTS
Applicants should refer to the regulations cited below to determine the certification to which they are required to
attest. Applicants should also review the instructions for certification included in the regulations before completing this
form. Signature of this form provides for compliance with certification requirements under 28 CFR Part 69, "New
Restrictions on Lobbying" and 28 CFR Part 67, "Government-wide Debarment and Suspension (Nonpro-curement) and
Government-wide Requirements for Drug-Free Workplace (Grants):'The certifications shall be treated as a material
representation of fact upon which reliance will be placed when the Department of Justice determines to award the
covered transaction, grant, or cooperative agreement.
1. LOBBYING
public(Federai,State,or local)transaction or contract under a
As required by Section 1352,Title 31 of the U.S.Code,and public transaction;violation of Federal or State antitrust statutes
implemented at 28 CFR Part 69,for persons entering into a or commission of embezzlement, theft, forgery,
grant or cooperative agreement over$100,000, as defined at bribery,falsification or destruction of records, making false
28 CFR Part 69,the applicant certifies that: statements,or receiving stolen property;
(a) No Federal appropriated funds have been paid or will be (c)Are not presently indicted for or otherwise criminally or
paid, by or on behalf of the undersigned, to any person for in- civilly charged by a governmental entiry (Federal, State, or
fluencing or attempting to influence an officer or employee of any local)with commission of any of the offenses enumerated in
agency, a Member of Congress, an officer or employee of paragraph(1)(b)of this certification;and
Congress, or an employee of a Member of Congress in con-
nection with the making of any Federal grant, the entering into (d) Have not within a three-year period preceding this applica-
of any cooperative agreement, and the extension, continuation, tion had one or more public transactions (Federal,State, or
renewal, amendment, or modification of any Federal grant or local)terminated for cause or default;and
cooperative agreement; B.Where the applicant is unable to certify to any of the
(b) If any funds other than Federal appropriated funds have statements in this certification, he or she shall attach an
been paid or will be paid to any person for influencing or at- explanation to this application.
tempting to influence an officer or employee of any agency, a
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1.Grantee Name and Address:
Saint Paul Police Department
100 East Eleventh Street
Saint Paul, MN 55101
2. Application Number and/or Project Name
3.Grantee IRS/Vendor Number
NIJ Solicitation for Policing Research and Evaluation
41-6005521
4.Typed Name and Title f Authorized Representative
i liam K. Finney, Chief of Police
5. Signature ,
/"— 6. Date
�
'U.S.Govemment Prhtiny OHke:1996•405-037/40p15
Rey Personnel List �� b I���
Coordinator and Lead Researcher-Sgt. John Harrington- St.Paul Police Department/Assistant
Professor-Metropolitan State University- School of Law Enforcement
100 East l lth Street, St.Paul, MN 55101
Office#612-292-3613
Fax#612-292-66520
Sgt. Linda Miller-MN Community Policing Institute/Bloomington Police Department
Sgt. Joseph Mollner-President of the Midwest Gang Investigators Association/St.Paul Police
Ms Kate Cavett- President of Hand in Hand Inc/Fairview Chemical Health Service- Boy Totem
Town 7uvenile Correctional facility
Ms Carrie Wesley-Director of St. Paul Police Research and Development Services
� � �'� � 1�� �
ABSTRACT
"The top priority is to evaluate programs and to know what does and
does not work. We must evaluate existing programs before designing
new ones."1 Malcolm W. Klein Ph.D.
The twin cities of Minneapolis and St.Paul have undergone a
profound change over the past decade. Beginning with the gang
shooting of Christine Kreitz, escalating to the assassination of
Minneapolis police officer Jerry Haaf and continuing on through a
record year, in 1995, of gang related and involved killings, the
twin cities have seen the homicide count continue to rise despite
several police administrations attempts to bring it to a halt.
Almost simultaneously with the recognition of a twin cities gang
problems, both Minneapolis and St.Paul police also began the
process of adopting community policing. Each city's community
policing philosophy has had a clearly discernable effect on its
gang problems.
This research project proposes to evaluate the community policing
responses of the Minneapolis and Saint Paul police departments from
1984 to 1995, concentrating on each department's response to the
presence of Midwestern street gangs. The research project will
result in an explanation of the new evolutionary model of the
Midwestern street gang member. The research will provide
recommendations for future effective community policing anti-gang
strategies.
� � - � b �- �
TABLE OF CONTENTS
Statement of the Problem Page 1
Research Approach Page 5
Goals/Objectives Page 6
Methodology Page 8
Evaluation Criteria Page 10
Organization and Management Plan Page 12
References Page 14
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PROJECT NARRATIVE
The Nature of the Problem
The metropolitan area referred to as the Twin Cities consists of
two major urban centers, Minneapolis and Saint Paul that �lie
adjacent to each other in the eastern part of the State of
Minnesota.
The City of Saint Paul is a city of the first class with a
population of 272, 000. The city is called the Capitol City since
the State Capitol is situated within it. However, it is the second
largest city in the state with the larger of the twin cities being
Minneapolis. Minneapolis. Having 390,000 residents is an urban hub
that is the center of the business and entertainment industry.
Both cities have a unique population component as being the site of
the largest concentration of South East Asians outside of Orange
County, California.
The twin cities' crime rate historically has been rated relatively
low when compared to other cities of comparable size and makeup.
According to the area's local analysts there were no organized
youth street gangs in the twin cities until 1984. Throughout this
proposal the definition of street gang is that of the State of
Minnesota statutory definition: MS 609.229. °a gang is a group of
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three or more people, with a common name, common symbols,
hierarchial organization, which is organized to commit crime or to --
give support to members who commit crimes."
In 1985, the twin cities found themselves the home to a new type of
criminal, the organized youth street gang in the form or the Vice
Lords and Gangster Disciples from Chicago. These gangs attempted
to set up criminal franchises here just as they had in their home
state. They quickly gained notoriety when several members of the
Gangster Disciples were involved in the killing of Christine
Kreitz, one of their gang members, in Minneapolis. At that time
neither the Minneapolis nor the Saint Paul police departments had
a gang unit and shortly thereafter there was a much ballyhooed
statement from the then Minneapolis Police Chief, Anthony Bouza,
"there is no organized gang problem in Minneapolis". Within a year
of making this statement, Chief Bouza started the first gang unit
in the state and added it to the several community policing
initiatives he had begun.
Simultaneously Saint Paul Chief of Police, William McCutcheon, was
echoing Bouza's sentiment as the El Rukins and Vice Lords took up
residence in the Capitol City. Chief McCutcheon at that time was
already heavily involved in community policing having been an
innovative leader. He had assisted in an effort to create the
city's first public housing patrol and other neighborhood policing
projects. McCutcheon was continuing in this direction and was
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responsible for the reestablishment of foot beats on Selby Avenue,
which was located within a stressed neighborhood and considered
unsafe by many of the residents. The foot patrol was empowered to
take on problems and act proactively against the gangs who were
beginning to operate in the area. At that time crime analysts in
both the Minneapolis and Saint Paul police departments estimated
the number of gang members at no more than 200 individuals for both
cities.
Over the next three years the gangs continued to expand and during
this time two major developments occurred. In 1986 the migration of
the Los Angeles' Crips and Bloods gangs began. The second major
development was the discovery of South East Asian gangs operating
in both cities. Both of these developments signaled the arrival of
a fundamentally new type of gang, one of which neither the
Minneapolis nor Saint Paul police departments had been aware. This
new type of gang from Los Angeles, that is a flat gang, due to its
flat organizational structure, and having a more organic operation.
It operated more like a cell structure than a paramilitary or
hierarchical structure. The new gangs were also different because
they recruited and used women for operational gang roles, also
recruited multi-racially, and were far more regionally mobile.
Finally, they tended to not have a clear pattern of crime,
committing what has been called "cafeteria style" crimes.
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Since 1990, gang activity has continued to grow at a rate of
approximately 20� per year. The number of different gangs qrew to
more than 50 and the individual membership ranks grew to 6000 as
the migration continued from Los Angeles and Chicago2. At the same
time local youth were joining the more established gangs and
expanding their membership while also starting up both their own
version of the Los Angeles style along with traditional gangs.
White supremacist groups brought yet another new element to this
exploding subculture. White youth founded either graffiti tagging
crews, white supremacists gangs or "wigger" gangs.
Throughout the 1980's and into the 1990 's gangs continued their
growth in the twin cities metropolitan area resulting in an
escalating rate of violence. Simultaneously both cities were moving
farther along the community policing continuum. The Minneapolis
police administration began a partnership between the patrol
division, the expanded gang unit and The City Inc. , a controversial
private non-profit organization which interacted with gang members
in some instances. This was one of several community relations
attempts made by then Chief John Laux. Despite these concerted
actions, gang membership and violence continued to grow,
culminating in the assassination of Officer Jerry Haaf by members
of the Vice Lord gang in August of 1993. By 1995, Minneapolis found
itself facing a record homicide rate.
In Saint Paul, Chief William Finney began his tenure in July of
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1993 with a mandate to expand community policing. Over the years
the aggressive anti-gang approach of the Selby foot beat had been
replaced with the more community oriented outreach of substations
and block watches. Saint Paul also continued to experience
increasing gang violence. Drive-by shootings near inner city
schools, shootings in city parks, fire bombings of homes and
homicides in the middle of the downtown shopping complex, all
served to put the police on notice that gangs had not moved out.
RESEARCH APPROACH
The Research will be coordinated by Sgt. John Harrington, Asst.
Professor at Metropolitan State University's School of Law
enforcement. Sgt. Harrington is a 19 year veteran of the Saint Paul
Police Department and is responsible for directing the department's
school related programs including School Liaison, DARE, the Truancy
Center and the school district's Zero Gang Tolerance effort. Sgt.
Harrington has been an instructor at Metropolitan State for more
than 10 years and was the director of the project which created the
School of Law Enforcement. Sgt. Harrington teaches both A Community
Policing course and classes on the Juvenile Justice system.
The gang research component will be conducted by a cross-
disciplinary team consisting of individuals from the Midwest Gang
Investigators Association (M.G.I.A) . The M.G.I.A. is chaired and
directed by Sgt. Joseph Mollner a 20+ year veteran of gang
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investigations with the Saint Paul Police Department and Sgt. Loren
Evenrude of the Minneapolis Park police.
The community policing assessment will be conducted by a team of
technical advisors from the Minnesota Community Policing Institute.
The Community Policing Institute is directed by Sgt. Linda Miller.
She is author of the text, Comm�?n��y Policing - Theory and
Practice. Sgt. Miller is originally from the Bloomington,MN Police
Department, where she was in charge of their community policing
efforts.
Oral histories will be collected through interviews conducted by
Hand in Hand Inc. , a private nonprofit agency specializing in youth
related research via the development of oral histories. The
President of Hand in Hand is Kathleen Cavett, an oral historian who
has won numerous awards for radio documentaries. Cavett is also a
Chemical Dependency counselor who has worked extensively with
juveniles in treatment and correctional settings.
This research project is proposed as a formative qualitative
evaluation on the effect of community policing on the spread of
gang activity in the twin cities from 1984 through 1995. The
research will be a set up as an after-only evaluation.
GOAL3
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The evaluation has two general goals:
1. Evaluation and assessment of the effectiveness of community
policing gang prevention strategies.
2. Creation of a gang typology that is more descriptive and
thereby useful to criminal justice professional.
The primary objectives of the evaluation assessment of the
community policing anti-gang efforts are:
• to describe the activities involved in the planning and
implementation of community policing anti-gang strategies.
� to describe the community policing anti-gang program
components that emerged and assess the extent to which program
goals were achieved.
� to interview the Chiefs of Police about the history of
community policing and gang prevention or intervention
strategies, thus delineating the historical record.
• to analyze the history of community policing in the twin
cities for the purpose of being able to chart by time line the
types of gang intervention strategies.
The results of this research program will provide the law
enforcement community in Minnesota with up-to-date research on the
etiology and evolution of gangs. It will also provide a variety of
agencies with information about community policing strategies that
have high probability of success.
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These results will have a much broader impact than on just the twin
cities area of Minnesota. It is anticipated that the model of
gangs that will be delineated will be instructive for suburban and
rural communities that are now in the inception stage of gang
problems. This model will also be applicable to many other cities,
since there is a steady movement of gang members back and forth
between the larger cities in the United States.
Articles on the study's findings will be submitted to national
journals and newsletters including: Criminology and the ACJS
Journal . Additionally, a radio/television documentary is planned
based on the gang oral histories. At this time, the local public
television station has expressed significant interest in the
project. Such a documentary would be available to other public
broadcasting stations nationwide. Channel Two, which serves the
Minneapolis/Saint Paul metropolitan area, is a television
production center. The documentary could also be disseminated in
the commercial television market.
METHODOLOGY
The evaluation will involve on-site field work at 15 police
precincts, substations and storefront operations in Minneapolis and
Saint Paul by members of the Community Policing research team. In
addition in depth site visits consisting of 2-3 days to each
department's gang investigators offices. These site visits will
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serve as the main vehicle for collecting qualitative data. During
the site visit key individuals will be identified and interviewed,
participants will be observed and documents analyzed. In addition
oral histories from Chiefs Bouza, McCutcheon, Laux and the current
Chiefs (Finney in Saint Paul and Olson in Minneapolis) will be
collected to analyze the history of community policing and gang
prevention and intervention strategies in their respective
departments. Archival research will be done to discover the
records of these agencies. Such textual sources as department and
annual reports, federal crime statistics, news stories, and
speeches will be used to corroborate and validate the interviews.
Field notes and case studies will be recorded for each of the sites
and cross-site comparisons which will assist in identifying common
anti-gang methods will be completed.
Hand in Hand Inc. will conduct interviews resulting in oral
histories of 100 or more past or present gang members. This
information will be taped and later transcribed. The information
to be collected on gang members will include: age, race,
educational background, economic status, place of origin, and
criminal background. In addition, background information on the
gang itself will be collected including: the name of the gang,
number of inembers, style of leadership, initiation rules,
organizational rules, history, and symbols. Gang members will also
be asked about their reasons for joining, for staying, and, if
appropriate, leaving. Members will also be asked to fill in a
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descriptive time line which describes the different police
responses to gang activities that they have seen and/or been part
of.
Selection criteria will be created to insure diversity by racial
category ,by gang affiliation( Gangster Disciples (Black and
White) , Vice Lords, Latin Kings, Crips (Black and South East
Asian) , Blood (Black and South East Asian) ; and by gender, females.
The gang members will be preselected based on their willingness to
cooperate and juvenile history.
Members of the anti-gang squads past and present would be also be
interviewed by the Gang Research team. Among those already
identified for interviewing are Sgt. W.R Luckow ret. , Mike Schoeben
ret. , Sgt. Butch Benner ret. , Sgt. Kit Hoskins, Sgt.John Pyka, and
Lt. Dan Carlson. These individuals will be interviewed regarding
the departmental response to gangs and the history of gang activity
in the cities.
EVALIIATION CRITERIA
To determine the success of the various anti-gang programs, we will
create a four part comparative time line. The time line will
consist of:
1. A community policing time line based on interviews and
archival study.
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2 . Crime statistics assessing youth's violent crime in both
cities as an obj ective measure of the impact of community
policing anti-gang programs.
3 . Anti-gang strategy effectiveness assessment and time line,
based on the oral histories of gang member responses to how
effective police strategies were.
4. Gang specialists gang growth assessment and anti-gang
strategy time line.
By graphing all four of the above time lines, a youth gang
developmental chart will emerge which will show correlations
between changes in gang activity and membership and the
implementation of community policing strategies. Success will be
assessed through the correlation of self-report data indicating
that police intervention or prevention efforts resulted in a
reduction of the number of gangs and members and in the reduction
of the violent crime index and FBI crime rate statistics.
The primary components of gang typology and etiology are:
• Collection of oral histories from past, present, and future
gang members seeking information on the organizational
structure, reasons, and process of joining the gang, police
strategies, their personal and the gang reactions to police
interventions and if appropriate reasons and process for
getting out of the gang.
• Conducting a literature search on the issues of gangs in the
Midwest.
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• Analysis of the gang oral histories and creation of a gang
typology that more accurately explains the two gang types.
• Correlation of the historical development of community
policing with the development and implementation of anti-gang
strategies to the growth of youth gangs in the twin cities.
ORGANIZATION AND MANAGEMENT PLAN
10/96 Coordinator works with the Gang Research adviser
and Community policing advisor to select research
teams.
11/96 - 1/97 Hand in Hand Inc. conducts oral history sessions
and records the youth's statement on audio video
tape. Parental releases will be sought for all
juveniles subjects and general releases will be
sought for all other gang members interviewed.
Interviews will be taped and then transcribed.
11/96 - 1/97 Gang Research task force will attempt to
corroborate all gang members information.
11/96 Gang research team identifies gang specialists
and conduct interviews.
11/96 Research team designs a typology based on the
oral interviews of the gang members.
11/96 - 1/97 Community Policing Research team identifies the
Chiefs and other policy makers who are responsible
for the development of the police department's
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community policing and during the target period
1984 through 1995.
3/97 - 7/97 Community Policing Research Team conducts site
visits to interview with police managers and other
personnel.
9/97 Research Team leaders collaborate to designs a
historical matrix to show correlations between COP
development and anti-gang strategies.
9/97 Research team correlates data on effect of police
strategies from oral histories to the department
anti-gang strategies and rates the strategies.
9/97 Research team identifies the strategies that have
had the highest rates of success.
9/97 Research team leaders writes the final report on
research project.
9/97 Research team leaders prepare articles for
publication in journals such as Criminology, The
Gang Journal, Midwest Gang Investigators Newsletter.
9/97 Hand in Hand, Inc. Team prepares tapes for possible
packaging for radio or TV documentary and training.
13
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FOOTNOTES
1.Malcolm W. Kelin. Street Gangs: Current Knowledqe and
Strategies Issues and Practices in Criminal Justice .
Washington D.C. U.S. Department of Justice, National Institute
of Justice 1993 Pg. 112.
2 . Sgt. Mike Schoeben , Minneapolis Police Gang Unit ,
private interview held during Metropolitan Transit Police training,
Minneapolis, MN. , October 1994.
REFERENCES
Community Policing:
Eck, John and Spelmen ,William , ?rob?em Solving -Problem Oriented
Policing in Newbort News. N.I.J.- U.S. Department Of Justice.
Goldstein, Herman Problem Oriented Policina, New York 1990
Kennedy, David M. ° Neighborhood Policing in Los Angeles, Case No
C16-87-717. "0 John F. Rennedy School of Government, Harvard
University , Cambridge MA 1990
Skolnick, Jerome H. And Bayley, David H. , "Community Policing:
Issues and practices around the world"( Washington
DC, :National Institute of Justice, US Department of Justice
, May 1988.
Trojanowisz, Robert and Bucqueroux,Bonnie. Community
Policina.Michigan State Press, Lansing MI, 1994
14
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Gang related:
Conly, Catherine H. strPp� Ganas• Current Knowledge and Strateaies
Issues and Practices in Criminal Justice . Washington D.C.
U.S. Department of Justice, National Institute of Justice 1993
Minnesota Peace and Police Officer Association. Street Drugs and
Gang Violence. William Gillespie , President( St.Paul, MN. Stuart
Bradely productions. 1990.
Spergel, Irving A. and Curry, David G. , "Gang Homicide Delinquency
and Community", Criminology 26(3)
Spergel, Irving A."Youth gangs : Continuity and Change" Crime and
Justice : A Review of Research 11-71(1990)
Spergel, Irving A. et al. , "Survey of Youth Gang Problems and
Programs in 45 cities and 6 sites, Stage 1 Assessment",
National Youth gang Suppression and Intervention research and
Development program, School of Social Service Administration,
University of Chicago(May 1990)
Jeffrey Fagan et al , ." Violent Delinquent and Urban Youths",
Criminology 24 (3) 1986
Klein, Malcolm. The American street Gang ,New York, Oxford
University Press. 1995.
15