THE ORGANIZED NEIGHBORHOOD, CRIME PREVENTION. AND THE CRIMINAL JUSTICE SYSTEM Dissertation for the Degree of Ph. D. MICHIGAN STATE UNIVERSITY THOMAS FRANK CHRISTIAN 1973 . ...,.‘....A.... A“ ‘. LIBiEAi’iY 5 N9“ "in Ste-“c i L, Uni t crsity r1 Ihis .is to certify that the .‘ I thesis entitled T117? cg:gjfj[7?3 italzfi-Incrzcco, CTEII'E PBWEITICIC, \ Azso THE CPIT~"II=‘AI,. JUSTICE 3mm: - presented by Thonas Frank Christian has been accepted towards fulfillment of the requirements for F“. D. Social Science degree in 87/ Major professor Date July-23' 1973 0-7 639 ABSTRACT THE ORGANIZED NEIGHBORHOOD, CRIME PREVENTION, AND THE CRIMINAL JUSTICE SYSTEM BY Thomas Frank Christian Purpose The responsibility for the average citizen to play his or her role in the criminal justice system in the area of crime prevention appears to be a necessary element in today's society if crime is to be reduced. As an individual, the citizen has to rely upon his own initiative to provide a positive input into this prob- lem. Organized in a neighborhood association, the citizen can magnify his contribution in the development of a better community. This study delves into the role that a neighbor- hood improvement association can play in crime prevention. It explores the possible linkages that the organized neighborhood can find between itself and the formal members of the criminal justice system. For nine months the writer participated as a silent observer in the meetings of a neighborhood improvement association in Muskegon, Michigan. He then Thomas Frank Christian interviewed sixty people from twelve agencies or groups in the criminal justice system: adult court (judges, proba- tion and parole agents), county jail, Department of Social Services, former offenders, juvenile court, Legal Aid, police department, Nelson Neighborhood Improvement Associ- ation, present offenders, prosecutor's office, public defenders, and the correctional institution. The purpose of the interviews was (1) to determine what role an orga- nized neighborhood could perform in the criminal justice system and (2) how the concept of an organized neighborhood such as neighborhood improvement association was perceived by the other agencies' personnel and also (3) how the agen- cies and groups perceived each other in assisting neighborhood improvement associations in crime prevention efforts. Methodology The approach chosen for the formation of the study was adapted from the Normative Sponsorship Theory developed by Dr. Christopher Sower, Professor of Soci- ology at Michigan State University. The individuals interviewed were asked a series of questions regarding their role in crime prevention and the role they per- ceived for an organized neighborhood. The questions were divided into three areas: ideal role, actual role, and suggested alternatives. The personnel chosen at random from each agency were also asked these questions :DINDV“ “ho-VOU‘ .. .. “ ‘ ._.__‘ ‘ -. ,-_ ’vvu . "V'. . .' b A: v - ..' .,,_‘ ;‘-- - A—fi-- m .- "_ - --“" Thomas Frank Christian concerning the role of their own agency and their per— ception of the role of the other eleven agencies or groups. The responses were charted on a matrix, a detailed descriptive profile of each agency or group was drawn and the suggested alternatives were listed. Comparisons were then made among the agencies and groups and feasible linkages were delineated. Results The twelve agencies and groups interviewed were in agreement that there should be a definite role for a constructive, positive organized neighborhood in crime prevention and the criminal justice system. Suggestions as to what the nature of this role should be varied. There were also diverse opinions on what the agencies and groups felt each other should be doing to assist an organized neighborhood in the area of crime prevention. The crime prevention alternatives suggested for Organized neighborhood groups ranged from mechanical prevention, such as locks and other security measures, to corrective prevention, such as the participation in the development of recreational programs, employment Opportunities and rehabilitation programs. This study indicates that there are functioning Organized neighborhood groups who are achieving crime Prevention results. The study also reveals that the 1‘. Thomas Frank Christian formal agencies of the criminal justice system have a need for, and are ready to accept the constructive organized neighborhood as an ally in combating crime. Ideas on what the neighborhood can do in assisting the other components of the criminal justice system are presented, and also what these agencies can do for the organized neighborhood to help reduce crime. The potential involvement of an organized neighborhood group, such as an improvement association, in.the criminal justice system is limited only by the energy of both the involved agencies and the citizens. It is one answer to crime prevention. THE ORGANIZED NEIGHBORHOOD, CRIME PREVENTION, AND THE CRIMINAL JUSTICE SYSTEM BY Thomas Frank Christian A DISSERTATION Submitted to Michigan State University. in partial fulfillment of the requirements for the degree of DOCTOR OF PHILOSOPHY College of Social Science 1973 Copyright by THOMAS FRANK CHRISTIAN 1973 DEDICATION To My Lovely Wife Bernice KOppy Christian ii ACKNOWLEDGMENTS I wish to acknowledge the financial support given to me in the form of a fellowship for graduate study by the Law Enforcement Assistance Administration of the Department of Justice, Washington, D.C. This support allowed me to devote my time to this study. I would like to thank the members of my doctoral committee: Dr. Robert C. Trojanowicz, the chairman, for his friendship, direction and encouragement; Director Arthur Brandstatter for his interest and assistance; Dr. Christopher Sower for the use of his theory and his asstance in its application; and Dr. John P. McKinney for his support and guidance. I would like to acknowledge the citizens of Muskegon, Michigan, who participated in this study: members of the adult court and juvenile court; Sheriff Marion Caulkins, Clyde VanArkle and the county jail personnel; Mr. Harry Geoghan and the personnel from the Department of Social Services; the lawyers from Legal Aid; former Muskegon police chief Herbert Dood, present police chief Anthony Kenney and their police officers; citizens from the Nelson Neighborhood Association; personnel from the prosecutor's office and the public iii defenders' offices; the Michigan Department of Correc- tions and the individuals in the present and former offenders ranks. I would like to thank the peOple from the Muskegon Area Development Council: Mr. John Chapman for his help and informative comments on the preliminary drafts, Gloria Dandridge for her secretarial assistance, Earline Perkins for her assistance in the certified housing program, and a special note of gratitude for the help from Mr. Alfred Williams, Jr. and his family. I would like to thank my Fairview Avenue neigh- bors in Lansing, Michigan, for their assistance. Finally, I thank my family, particularly my brother Ken for all his help and my wife, Bernice, for being my partner in all our work. iv TABLE OF CONTENTS Page LIST OF TABLES . . . . . . . . . . . . . ix LIST OF CHARTS . . . . . . . . . . . . . x Chapter 1. INTRODUCTION . . . . . . . . . . . 1 THE CRIMINAL JUSTICE SYSTEM INCLUDES THE CITIZEN . . . . . . . . . . . 1 THE CRIMINAL JUSTICE SYSTEM: SELF-SERVING OR COMMUNITY ORIENTED . . . . . . . 4 THE POLICE‘ . . . . . . . . . . . 5 THE COURT SYSTEM . . . . . . . . . 6 CORRECTIONS . . . . . . . . . . 7 THE CITIZEN . . . . . . . . . . . 8 THE ORGANIZED NEIGHBORHOOD APPROACH . . . 12 THE ORGANIZED NEIGHBORHOOD: A DEFINITION . 14 THE STUDY . . . . . . . . . . . 14 2. CRIME PREVENTION: AN OVERVIEW . . . . . 18 DEFINING CRIME PREVENTION . . . . . . 19 UNDERSTANDING THE CRIME PROBLEM . . . 23 COOPERATION AND COORDINATION . . . . . 25 THE SCHOOL . . . . . . . . . . . 26 THE JUVENILE COURT . . . . . . . 27 / THE POLICE . . . . . . . . . . . 28 SOCIAL WORK AGENCIES . . . . . . . . 29 V Chapter \/ 3. I\\./" TYPES OF PROGRAMS: AN OVERVIEW . . THE YOUTH SERVICES SYSTEM . . . . ORGANIZING CITIZENS TO REDUCE CRIME . CHANGING THE SYSTEM . . . . . . SUMMA RY O O O O O O O O O 0 PART I. REVIEW OF THE LITERATURE: THE ORGANIZED NEIGHBORHOOD AND CRIME PREVENTION . . . . . . . . . SYMPOSIUM ON NEIGHBORHOOD AND CITIZEN INVOLVEMENT . . . . . . . . SAUL ALINSKY AND MILTON KOTLER . . TENANT ASSOCIATIONS . . . . . . ALAN ALTSHULER: COMMUNITY CONTROL . NATIONAL NEIGHBORS . . . . . . SUMMARY . . . . . . . . . . PART II. THE CITIZENS' INTERACTION WITH CRIMINAL JUSTICE SYSTEM IN ENGLAND: COMPARATIVE STUDY . . . . . . . SECTION I. THE POLICE AND CITIZEN INVOLVEMENT IN ENGLAND . . . . SECTION II. THE COURT AND COMMUNITY INVOLVEMENT O O C O C O . O 0 SECTION III. COMMUNITY SERVICE AGENCIES . SECTION IV. COMMUNITY INVOLVEMENT AND THE PENAL SYSTEM . . . . . . SUMMARY AND CONCLUSIONS . . . . . REFERENCES . . . . . . . . . vi Page 30 32 40 43 48 51 71 84 100 100 104 113 115 116 125 128 131 133 137 Chapter 4. 5. 6. THE CASE HISTORY, METHODOLOGY, AND PART I. THE CASE HISTORY PART II. METHODOLOGY . PART III. THE SAMPLE . ANALYSIS . . THE ADULT COURT: THE COUNTY JAIL: A PROFILE A PROFILE SAMPLING THE DEPARTMENT OF SOCIAL SERVICES: A PROFILE . THE FORMER OFFENDER: THE JUVENILE COURT: LEGAL AID: THE MUSKEGON POLICE: NELSON NEIGHBORHOOD IMPROVEMENT ASSOCI- A PROFILE ATION: THE PRESENT OFFENDER: A PROFILE A PROFILE A PROFILE A PROFILE A PROFILE THE PROSECUTOR'S OFFICE: THE PUBLIC DEFENDER: THE CORRECTIONAL INSTITUTION: SUMMARY . . CONCLUSIONS AND RECOMMENDATIONS CONCLUSIONS . SUMMARY . . RECOMMENDATIONS A PROFILE A PROFILE . A PROFILE vii Page 140 141 160 171 184 185 197 207 225 235 247 256 271 287 299 309 318 327 329 329 345 346 Appendix A. LETTER OF INTRODUCTION FOR THE PROJECT B. A MAP OF THE CITY OF MUSKEGON, MICHIGAN C. MATERIAL FROM NEIGHBORHOOD ASSOCIATION'S FILE IN MUSKEGON, MICHIGAN . . . D. THE INTERVIEW FORMAT . . . . . E. MEMBERSHIP LIST OF NATIONAL NEIGHBORS BIBLIOGRAPHY . PART I PART II. COMPARATIVE STUDY OF ENGLAND viii Page 361 363 365 386 391 395 396 411 L IST OF TABLES Agencies and Personnel Participating in the study 0 O O I O O O I O O 0 Ages of Participants in the Study . . . Years of Experience of Participants in the Study . . . . . . . . . . . . Formal Education of Participants in the Study 0 O O O O O O O O O O 0 ix Page 172 174 175 177 Chart A. LIST OF CHARTS Referral Sources--Youth Services System Diagram of the Consensus-Matrix Method of Studying Organizations . Diagram of the Matrix Method of Identifying Areas of Agreement and Disagreement Diagram of the Matrix Method of Identifying' Areas of Consensus and Dissensus of Neighborhood Improvement Association's Role in Crime Prevention . Page 36 168 169 330 ‘5. n 1.. .. or- Chapter 1 INTRODUCTION THE CRIMINAL JUSTICE SYSTEM INCLUDES THE CITIZEN The issue of law and order is the focus of much attention in the United States today. The criminal justice system is attempting to improve its effectiveness in controlling and preventing crime. The continuum of the criminal justice system is normally depicted as being comprised of the police, the courts and correc- tions.1 The formal members of the criminal justice System exist as a service to the citizen but the system itself must include the citizen. It requires that every person become involved to some degree and participate in the carrying out of its goals and objectives. The National Commission on Criminal Justice Goals and Stan- dards has as its ultimate goal the reduction of crime. The citizen can help in many ways to achieve this goal. 1The Challenge of Crime in a Free Society, a report by the President's Commission on Law Enforcement and Administration of Justice (U.S. Government Printing Cfifice, Washington, D.C., February 1967): PP- 8‘9- 2National Conference on Criminal Justice Goals and Standards (Washington, D.C., February 23-24: 1973’° 1 Much is being done in the United States to improve the role and function of the police, the courts and corrections in the criminal justice system. The question remains, what is the average citizen doing to play his part in the area of crime prevention? His attitude is often one of fear, justified or unjusti- fied, Or he assumes the role of constant critic. The citizen is now giving indications that he is growing tired of sitting back and waiting for conditions to improve or looking for simple solutions like mechanical devices. There are many positive means available to assist the citizen in crime prevention. Mechanical prevention is a necessary step but one can only go so far in buying locks, purchasing a dog or, worse yet, acquiring a weapon to protect himself and his family.3 The citizen is critical of the police, the courts and corrections and with some justification. How- ever, the criticism often reveals many discrepancies and 3A 1973 survey conducted in the state of Michigan by the State Office of Criminal Justice Programs showed that forty-two percent of the people of Michigan have weapons and of these, twenty-nine percent have handguns, fifty-eight percent have rifles, sixty percent have shot- guns, and twenty—five percent knives. Forty percent of those polled said they had instituted other kinds of pro- tection. Of these, sixty-four percent strengthened houselocks, forty-five percent installed outside lighting, sixteen percent added protective windows, seventeen per- cent purchased dogs and four percent installed special alarm systems. «I. n:- -..‘ .~-- .uv. 1.. l a... 7 In. m... inconsistencies among individual citizens. They complain that the police are too brutal or too lax, too slow to arrive when called or too fast to arrest someone for a minor problem, too calloused or too nonchalant, too prejudiced or too lenient with minorities or students. Many citizens who think that the police today are doing the. best that they can under the circumstances are quick to attack the court system. The police do their job and the judges "slap the wrists" of the offenders and release them; or, the prosecutor reduces the charge in order to hasten the whole process. Some citizens feel the disposition on a given case is too strict while others feel the guilty party should be punished more severely and "taught a lesson." The corrections people are taken to task for not rehabilitating their clients, or for releasing them too soon, or for trying to make a "country club" out of a prison. However, when an innovative and progressive approach like a halfway house or residential correctional facility is planned for a neighborhood, many local citi- zens rise up in protest. They will not allow such a Program in their community despite the fact that a resi- dential facility can cost less per client than a large .- v-v' .50"" 07". _..d - a... ..-. v~.~ — puison structure and that it can be more effective in treating the offender.4 THE CRIMINAL JUSTICE SYSTEM: SELF- SERVING OR COMMUNITY ORIENTED The citizen has a right to demand more from the formal agencies of the criminal justice system. Even though these departments have been created to serve the community, they have in many cases become more like self-serving bureaucracies than citizen-centered insti- tutions. They often act as if they exist as an end in themselves rather than as a means for serving the com- nmnity. Society is suffering the consequences. The rise in violence and crime in the United States has puoduced a recent awareness and demand on the criminal justice system to develop new resources and change its outdated and ineffective methods. However, because of these deficiencies, the police, the courts and correc- tions have attracted attention and have been given some 4Martin Gula, "Agency Operated Group Homes," U.S. Department of Health, Education and welfare Administra- tion, Children's Bureau, 1964, p. 29; see also H. Weeks, "The Highfields Project," Juvenile Delinquency: A Book gg'Readings, ed. Rose Giallembarde (New York: John Wiley and Sons, Inc., 1966), p. 530; Kenneth F. Schoen, "PORT: IlNew Concept of Community-Based Correction," Federal Ekobation, September, 1972, p. 35; Robert TrojanOWIcz, quenile Delinquency, Concepts and Control (Englewood (diffs, New Jersey: Prentice-Hall Inc., 1973), p. 269. of the means to improve themselves. Federal, state and local funds are being poured into these three areas of the criminal justice system. THE POLICE The police are receiving assistance, support and impetus in almost every phase of law enforcement.5 They are benefiting from Law Enforcement Assistance Adminis- tration grants and loans for personnel training, education, research and technology, and information exchange. Department of Defense personnel assist the police in cases of civil disorder to explosive ordnance (fisposal. The Federal Bureau of Investigation gives assistance through fugitive location and investigations of police killings, on request. The Bureau of Narcotics and Dangerous Drugs helps in local investigations and supplies funding to local agencies for purchasing the services of informants. Police recruitment and staffing guograms are conducted by the U.S. Civil Service Commis- shnn The Office of Economic Opportunity, the Community PMlations Service, part of the Department of Justice, mklthe Federal Trade Commission support various facets 5Attorney General's First Annual Report, Federal Egg Enforcement and Criminal Justice Assistance Activi— tues (U.S. Government Printing Office, Washington, D.C., 1972), p. 39. of improved police relations and services to their local communities. Funding assistance for a wide variety of police activities is provided by the Model Cities Pro- gram.6 State and local requirements for training are being improved. Crime prevention teams are being trained, for example, in Louisville, Kentucky, at the National Crime Prevention Institute. Local training centers in crime prevention are also being established. In Michigan, Macomb County Community College has a Crime Prevention Training Program. These programs are based on England's Home Office National Crime Prevention Center in Stafford. Police-community relations teams are being emphasized. The police are working to improve themselves and to become more professional and more effective. THE COURT SYSTEM The court system has received similar assistance. Court administrators are being trained to facilitate the backlog of cases and to free the judges to spend more time in the courtroom, individualizing justice and selecting more appropriate alternatives and programs for clients. 6Ibid., p. 39. Emphasis on community-based treatment is provi- ding for more pre-trial diversion programs, halfway houses and other innovative approaches to community treatment. These and other programs give the judges and prObation counselors more alternatives to help the client- Hake a satisfactory adjustment in the community. CORRECTIONS Corrections also has received much attention; both positive and negative. On the negative side, for example, the Attica disturbance received a great deal of press coverage focusing on the deplorable conditions that exist in contemporary prisons. On the more posi- tive side, programs like Project New Gate, which provides counseling and technical or educational preparation before release from prison and post release training, personal counseling and guidance, have proven to be successful. The use of halfway houses, residential facilities and emphasis on the improvement of institu- tional conditions are other advances being made in the field of corrections. The ex-offender is being used in the correctional field more than in the past and he is proving effective. The federal government is devoting .Q'A u ,.--‘u .-.-A .1...r a -li v. mmre of its resources than ever before to the rehabili- tation of the offender.7 THE CITIZEN The police, courts and corrections have a long way to go to meet the needs of society. They appear to be trying to improve themselves rather than looking for a.scapegoat to blame for the problems of law and order. The focus now returns to the average citizen. What is she or he doing to work with other citizens and the fOrmal agencies to improve the criminal justice system? Tfimt is the citizen doing about crime prevention? If citizens have the right to demand that certain deviant members of the community be prevented from continuing certain behavior then they also have the obligation to create the type of atmosphere, programs and facilities that will help prevent this type of behavior. The (fitizen also has the obligation to see that certain mebers of the community who need special services receive the assistance that is due to them in a demo- cxatic society. The average citizen, however, has citen relegated to the formal agencies the job of pro- xdding social assistance. These agencies have not been very effective and are now undergoing scrutiny, evaluation 71bid., pp. 128—29. and, hopefully, change and improvement. But the process 8 Crime and success of updating themselves is limited. preVention is a total community concern. It cannot be left only to the professionals in the criminal justice system.9 It is time for the citizen to play a more active role in the criminal justice system in order to prevent society from becoming more fear-centered and crime ridden. PeOple appear to be tired of the present trend of more crime and less order. They are signalling that they are ready to do more to halt this momentum. A frequent question from a concerned citizen is "but what can I do?" Individually, a person can become very involved on a volunteer bases. However, if citizens can organize themselves into a consistent, constructive 80r. Christopher Sower of Michigan State Uni- versity has deveIOped a theory for updating organizations. He states that major institutions are captured by obso- lete bureaucracies. Public agencies and associations, unlike business and industrial organizations, have perceived themselves as being so sacrosanct that they have refused to accept the premise of pending obsoles- cence even for examination and for experimental tests of updating kinds of innovation. The solution to this pucblem of refusal to recognize organizational obsoles- cence is in an increased public awareness and recognition that the maze of institutions and agencies is outdated. 9"The Community and Criminal Justice, A Guide fOr Organizing Action," prepared for distribution at the National Conference on Criminal Justice, January 23-26, 1973, Washington, D.C. u _!A« ”4". .p.” vQ-" p. .. h, ‘ \. . x » 10 force they can multiply many times their individual effectiveness toward improving the criminal justice system. Concerned citizens from individual neighbor- hoods should organize themselves for this purpose and obtain technical assistance from professionals. The goal of the neighborhood group would be to do its part In regard to the first typology, primary and secondary prevention, there are many programs that attempt to both prevent the onset of crime and delin- quency and also treat the person who has already come in contact with the criminal justice System. These . “fir- JL—‘_:.———_ -— 23 can be described as both primary and secondary oriented. The Youth Services Bureau, a program to be discussed later, is an example of both a primary and secondary prevention program because it serves a variety of youths ranging from those who have not had contact with the criminal justice system to those who have had extensive and repeated exposure to the system. UNDERSTANDING THE CRIME PROBLEM Regardless of the particular classification or type of prevention program implemented, the effort will be meaningless unless the community understands the program, accepts its orientation and is willing to sup- port it. In addition, efforts of program initiators will be futile if the community does not understand the seriousness and the scope of the problem. For example, a commUnity may fail to support_ and use psychiatric services in a child guidance clinic but may grab at simple solutions such as curfews, banning comics or restricting movie attendance. There are no simple solutions to crime and delinquency prevention. 'Community support is needed so that resources can be allocated to well organized pro- grams based on sound planning and workable assumptions. 5William Kvaroceus, The Community and The Delinquent (New York: gThe WOrld Book Company, 1954), p0 1620 I‘ ' 24 Programs that typify the above characteristics and have community support will have a greater chance of success than piecemeal efforts. In addition, If the available youth servicing agencies and the organizations are to be improved, if needed services not presently available are to be'pro- cured, if all resources are to be so articulated that the specialized needs of predelinquent and delinquent children are to be met at the strate- gic time and with the most promising prescription of service, two conditions must prevail: (1) There must be a continuous study of local youth problems and local youth servicing agencies and (2) there must be some community system or body established that will ensure overall organiza- tion, planning and coordination of services to all youth.6 Furthermore, citizen apathy and unwillingness to become involved and support programs will be very devas- tating to community crime and delinquency prevention efforts. Enlisting the American conscience on behalf of community crime prevention is at once an ironic and necessary procedure. It is ironic because of the hue and cry about the current volume of crime. There appears to be a wide- spread assumption that it is the business of the criminal justice system to respond to this demand and to marshall all available resources to choke off crime at its roots. This viewpoint neglects the certainty that unless a worried citizenry can translate indignation into active participation in the search for and implementa- tion of an effective solution, the criminal justice system must inevitably fall even further behind in its crime control and rehabilitation efforts. Awakening the conscience of America is a necessity because if the multiplicity of fac- tors that produce crime and delinquency are not 6Ibid., p. 163. :- ti 25 recognized and remedied, more crime will occur and more of it will go undetected, and the inadequacies of the system will thus become an even stronger incentive to further illegal activity. Citizens in a community not only have to become aware of the serious crime problem and convinced of the need for effective prevention and treatment programs, more importantly they have to become involved themselves in action programs. This dissertation continuously emphasizes this point. COOPERATION AND COORDINATION Another majOr problem in attempting to create and initiate crime prevention programs is to obtain cooperation and coordination among many different agencies within the community which can contribute to problem solving. It cannot be assumed that merely because an agency has as part of its goal the prevention, control and treatment of crime and delinquency that the imple- mentation of this goal will automatically be achieved by the good intentions of the initiators of the particular program. All agencies which deal either directly or indirectly with delinquents, pre-delinquents, and youth in general have the potential for perpetuating 7Community Crime Prevention, National Advisory Commission on Criminal JustiCe Standards and Goals, 1973, pp. CC‘Z. 71. b - ~\U A\U IHU "v 26 and, in fact, sometimes producing delinquency as well as reducing it. THE SCHOOL Dinitz, Reckless, Murray and others have shown that in addition to being a vehicle for directing the student's energy into positive channels, the school can also contribute to the student's developing a negative self-concept. This can have implicatiOns for his future behavior both in the school and in the community. Many students, particularly those from disad- vantaged groups, have difficulty competing in the classroom in accordance with the criteria that have been established by the particular school system. As a result, some students are handicapped educationally because of a lack of competitive and social skills. They retreat from the academic competition which is subsequently interpreted as their not being interested or capable of producing within that system.' When a child retreats in this manner and is labelled a failure or a potential failure by his teachers this can affect his self-concept. This is true not only in the school but also outside the school and it can help create and 8Simon Dinitz, Walter Reckless, and Ellen Murray, "Self Concept as an Insulator Against Delin- quency," American SoCiological Review, 21 (December, 1956) . '1.) O. O . n- t 1“ -M "—_"‘-——"— 27 perpetuate the child's feeling that he is less than capable when compared with his peers. Cohen pointed out the negative ramifications of an unequal competi- tive system and its relation to the delinquency phenomenon.9 When children are unable to compete in the "system" and do not learn to sublimate their energies in a socially acceptable manner, a delinquent solution to the problem solving is often the result. School pro— grams and teachers have to be responsive to the needs and abilities of all the students. Flexible and inno- vative programming and curriculum development accompanied by sensitive classroom behavior by teachers is mandatory. THE JUVENILE COURT The Juvenile Court also has the potential for producing and perpetuating delinquency. If the court is not responsive to the needs of the total community and in fact indiscriminately prosecutes and processes children from limited segments of the community, the indiscriminate labelling can affect both the child's attitude toward himself and the community's attitude The social ostracism and the negative toward him. . 9Albert Cohen, Delinquent Boys (Glencoe, Illinois: The Free Press, l955).g 28 self-concept can Contribute to his anti-social behavior in the community. Court procedures should be equitable and sensitive to the possible negative ramifications of hasty labelling. Realistic, humane, and appropriate methods of processing and treating juveniles are necessary if the court is to be an effective component of the criminal justice system. THE POLICE Police agencies also contribute to the perpetu- ation of delinquent behavior. Many times the first contact that a child has with the criminal justice system is with the police officer. Many young people, delinquents in particular, have problems with authority because of poor authority relationships in their past. If a child's first contact with the police officer is negative, and the police officer exerts his authority in an arrogant manner, this can support the child's already negative concept of authority and contribute to his further acting against authority within the commu- nity. However, an officer who impresses the child as being an understanding but firm adult, who will treat him fairly, can have a positive impact and can be one of the major factors in influencing the boy to alter his behavior and divert his energy into socially acceptable channels. b\ R! V: (1“ DH .11 29 SOCIAL WORK AGENCIES Social work agencies can also contribute to delinquent behavior by perpetuating the delinquent's irresponsible behavior. Too often social workers, in an attempt to help the delinquent or the pre—delinquent, readily give him excuses for his behavior and transmit to him, either directly or indirectly, that because of his past or present circumstances he has an excuse for committing delinquent acts. Social workers should remember that it is possible to accept the delinquent's negative feelings toward authority and the community but at the same time they should not transmit to him that he has a "right" to act out against the community. It is possible to accept the child's feelings but not his negative behavior. A more responsible attitude on the part of some social workers can help in reducing the acting out of negative impulses within the community. All agencies which deal with the delinquent or pre-delinquent have to constantly be aware of the impact they have on their Clients' lives and must not take for granted that merely because they were established to prevent delinquency and crime that their programs and policies always foster this end. Many times these same "helping" agencies produce, foster and perpetuate the very phenomenon that they are trying to eliminate. (3 (I) 30 COOperation and coordination among the agencies of the criminal justice system are absolutely necessary as is a constant evaluation of agency policies and pro- cedures. Bickering, competition, conflict and political interference among agencies will stifle problem solving and inhibit effective prevention efforts. TYPES OF PROGRAMS: AN OVERVIEW Most prevention programs orient themselves to either one or all of the following target areas: 1. Prevention through employment 2. Prevention through education 3. Prevention through recreation 4. PreVention through counseling and the use of treatment techniques. Vigorous and well planned employment, educational, recreational and counseling programs are often absent in many communities. Dealing with these basic problems can do much for reducing and ultimately preventing crime and delinquency. Innovative approaches have been attempted in these areas. The following are a sampling of the types of Programs that have been tried or contemplated in some communities. 1. Protective Services Programs--early identi- fication of homes of pre-delinquents where parents are HP Hi 01 .4 H! til (7 "I1 ’1‘ - "* __ H‘— 31 not providing adequate supervision, care, guidance and training for their youngsters. In the most serious cases youngsters are removed from the home and placed in community facilities such as a group home or halfway house. In less serious cases intervention techniques of family counseling, support and assistance are pro- vided. 2. Early Delinquent Identification School Pro- gramgé-the use of the classroom teacher as a means of identifying potential problem children so that early prevention and treatment can be facilitated and counseling and other services provided in the earliest stages before more serious behavior manifests itself in the junior and high school years. 3. Teenage Action Programs--efforts to involve teenagers in community improvement programs as well as participation and involvement in educational, recre- ational, employment and other activities. 4. Peer-to-Peer Volunteer and Work Programs-- projects that involve young people in counseling and other communication actiVities with their peers; assist- ing in problem identification and problem solving. Many innovative drug programs are staffed and Operated by young people who can, more effectively than adults, communicate with their peers and provide socially accepta- ble alternatives to problem solving- '5‘ K). h. Q. A. ‘ l *fiv‘fi—v—bvq — 32 5. Neighborhood Youth Services Programs--compre- hensive efforts to provide neighborhood youngsters with a wide range of services which may include counseling, education, employment and recreation. Local facilities are used, professionals consulted and community residents recruited to work on andsolve local problems. 6. Youth Services Bureau-~a program usually located in a local community center, which serves pre- delinquent and non-delinquent youths. Referrals can come from many sources, with most originated by the police and neighborhood residents. The Youth Services Bureau links and coordinates the many different services in the community to provide individualized attention to local youths. Most of the youngsters are handled and helped in a non-stigmatizing manner and the formal criminal justice processes are only used as a last resort. THE YOUTH SERVICES SYSTEM As mentioned earlier, one of the major diffi- culties in developing and implementing crime prevention programs is the lack of Coordination and cooperation among the various community agencies. The Youth Develop- ment and Delinquency Prevention Administration (YDDPA) of the U.S. Department of Health, Education and welfare has developed a model called the Youth Services System. This system provides for both the delivery of services 33 to the youth in the community while also having the capacity to bring about changes in social institutions. The system emphasizes a uniform approach to problem solving and it creates a network of linkages among agen- cies, programs and citizens within the community focusing on helping youth. Most of the youth using the system are diverted from the formal criminal justice system to alternatives that are less stigmatizing. The advantages of the Youth Services System were quickly recognized. Shortly after YDDPA completed the development of this model in 1971, 23 communities began to adopt it. By mid 1972 Youth Services Systems were at some stage of development in 49 communities, including the eight cities selected by the Law Enforcement Assistance Administration for an intensive effort to reduce street crimes by 20 percent in five years. In developing the Youth Services System model, YDDPA staff analyzed the weaknesses that were common to most community programs and designed the model to overcome these weaknesses, while also serving as a vehicle for achieving social changes. The major components of this system are as follows: 1. A plan for integrating services that are now fragmented- loDelinquencqurevention Reporter, U.S. Depart- ment of Health, Education and Welfare, Youth Development and Delinquency Administration (Washington, D.C.: February, 1973), p. 7. -' ‘ M ‘fig ‘_ .flqh-vv 34 2. Adaptability, so that services keep pace with the changing social needs of an ever changing social scene . 3. Scope-—a system that reaches all youth of the area regardless of who they are or what their problem may be. 4. Joint funding—-either through multi-agency commitment of resources or purchase of service mechanisms. 5. Multijgovernmental participation--federal, state and local agencies, as well as local private agencies need to be involved. 6. An evaluation program that will not only help the local community, but also other communities, to benefit from past mistakes or successes. 7. Willingness to translate technology and new knowledge into action programs. 8. A meaningful involvement of_youth themselves in carrying out programs. A system that possesses these characteristics, it is believed will be a powerful advocate of youth, not only to induce change through interaction of the agencies that are directly involved in the system but also to bring effective pressure on social institutions that have a less direct impact upon the youth population. 35 Thus, ultimately, there will be changes beneficial to 11 (See Chart A.) youth in the total milieu. The Youth Coalition of St. Joseph County, South Bend, Indiana, composed of representatives of many diverse youth groups, designed a youth advocacy program to implement the dual objectives of youth development and delinquency prevention. Youth advocacy is designed to lower the incidence of juvenile delinquency, and foster youth development by increasing the capacity of youth to intervene in established community institutions to make them more responsive to the needs of youth. The major objectives are: 1. DevelOp a youth services system which will divert youth away from the juvenile justice system into other alternative programs. 2. Reduce youth and adult alienation. 3. Provide more socially acceptable and meaningful roles for youth. 4. Eliminate the labelling of youth that creates negative consequences.12 Responsible and meaningful roles for young adults are offered through participation in the social action activities of the Youth Coalition. 11Ibid., pp. 7-8. lzIbid. (May-June, 1972), p. 5. u. M. REFERRAL SOURCES “NS. vim mrfit hunt! 'a r amen-w o. rem. A -_.. 4' “7} L.._._ 5&4}. count —( »—-———- —-—.J m mm cum -J nun-m .33.;— r“ ."2. .mulnma-nnum‘ - a an: mm out-null: . «acumen-nu I ”mltul I Ina-mu unn' a “an. o nun-u gamma-u: I an «nu-to a Own-D I ”no". 0 I “on...” O wan-um Q- J gs L4 an“ - vunnm-wmuewuumo mun .... - Minna" a 6-1- «Inn-000v tutu-nu "um “"~ “I'M “- CHART A YOUTH SERVICES SYSTEM _“,.,_.,,_.. --|r- HIU «an: “HUI.“ - noun-a nuns-emu.” mum-u: um: 'IIIINKI I “M'IIF.-II.~¢I “1 ant-van: uuovun In “(I-“unfit..." nun-v -RII I m a. mu- v 01mm. 0.. ”:IND ful~ “Him... m can: M000-.. 46-. a .! Inn" on ova-vau- l c noun—- 0 M. '- II I D hunt “I!“ ”I 0 van- uncut-um: vow"; - o (”It nun “ICQS I at (“III “3‘16 I 6"“ M 0‘ C-‘C'n o -0 (”N Inn-ADM!" a“... Chart A "IV Referral Sources--Youth Services System 36 ‘HI. _ 41—— —-. _ ‘- V 37 The Youth Advocacy Program offers direct and indirect services for youth. The cOOperative efforts of Youth Coalition and Youth Advocacy provides a mechanism for youth involvement in constructive commUnity change. The Youth Development and Delinquency Administration outlines the major program elements of the Youth Advocacy Program in South Bend. 1. Street Academy--A joint effort of the Youth Advocacy and the National Urban League, the Street Academy provides an alternative to traditional class- room education for sixty students who are not achieving in that setting. School dropouts over sixteen years of age work in groups of fifteen, with one master teacher and one assistant teacher. Emphasis is placed on prepa- ration for life and work skills in a highly flexible educational environment. 2. Field Service Representatives-~To assess and attempt to alter those features of community institu- tions which obstruct a favorable course of youth deVelopment, five Youth Advocacy staff are placed in key community institutiOns. These individuals serve as liaison between the Youth Coalition and the South Bend Community School Corporation, Model Cities, the South Bend Recreation Department, the Family and Children Center and the South Bend City Government. A sixth worker coordinates the activities of the Youth Coalition. 38 Field services representatives as a group also assist in planning a court diversionary system based on commu- nity needs and capabilities. 3. Counseling Center—-A facility open from 9:00 a.m. to 10:00 p.m., the Center employs two experi— enced counselors to provide individual, group or family counseling for walk-in or referrals from community agencies. In addition, vocational counseling and psychological testing are offered. Staff counselors are assisted by eight student interns from the Depart- ment of Counseling Psychology of the University of Notre Dame. Remedial tutoring is provided for local high school students by Notre Dame students. 4. Community Service Workers--Ten street youths attend youth functions and ride school buses to prevent disturbances and vandalism. Peer counseling is provided to pre—delinquent youth and youth are directed to Youth Advocacy services by the community workers. 5. Legal Assistance--A lawyer and two legal interns provide legal counseling for youth and defend youth interests though class action suits and the advocacy role in community agencies concerned with the administration of justice. A law curriculum is planned for all levels of students. 6. Evaluation-~The University of Notre Dame's Institute for Urban Studies has been contracted to 39 evaluate the Youth Advocacy program, to strengthen pro- . gram operations and to provide YDDPA a reliable means of assessing program strengths and weaknesses. Periodic assessments and in-depth examination of changes in social indicators during the life of the program are also planned.13 The involvement of youth in prevention programs is very important to insure program success. In the past the recipients of the program were usually not involved in the planning, development and implementation of prevention programs and consequently there was often not program support by the clientele. It has now been recognized that by involving youth in the actual decision-making process and operation of programs they will be more committed to the program and more actively involved in its successful implementation and operation. Too often youths have felt powerless in their communi- ties, lacking trust from adults. Young people have many skills, abilities and much energy that can be used productively and constructively if given the Opportunity to demonstrate their capabilities. The South Bend Youth Advocacy Program vividly demonstrates this. 13Ibid., p. 5. H1 40 ORGANIZING CITIZENS TO REDUCE CRIME The initiation and implementation of prevention programs will be meaningless unless, as pointed out earlier, there is citizen support. Citizen involvement in crime prevention is an absolute necessity. No longer can the "average guy in the street" expect professionals to "perform miracles" in the community just because they have technical or academic expertise. The professionals have to be linked with community residents to effectively combat and prevent crime and delinquency. Neither pro- fessionals nor government alone can solve the problem without public involvement and support. In the early history of this country, citizens were very directly involved in the social control processes; each neighborhood looking out for its own welfare with its residents being the instruments for protecting life and prOperty. As the criminal justice agencies became more formalized and standardized, citizens came to depend more and more upon the profes- Sional "guardian."‘ In recent years, however, it has been widelyrecognized and acknowledged that without citizen involvement meaningful and effective prevention and control will be difficult to achieve; most of the guardian's time is Spent "putting out fires" and dealing with crises. f‘ 5V 41 Resources, manpower and new theories alone will not solve the problem. The major impetus, involvement and support will have to come from local residents. Unfortunately, . . . community leadership appears all too willing to delegate (or default) its responsi- bility for dealing with anti—social behavior. Eventually that responsibility is assumed by large public agencies. [The extremely expensive services of these agencies] never seem to catch up with the need. They come too late to be 'preventive' in the most desirable sense of the word. Moreover, the policies are controlled from political and administrative centers far removed from the grass roots--where delinquency and crime originate through obscure and complex processes. The key issue in preventing crime and delinquency is citizen involvement, which includes the youth in the community. Local citizens can exert a great deal of influence to improve their communities through becoming involved in crime prevention efforts. Each citizen can exert leverage by organizing his neighbors or making his Opinions known at such events as church activities, school functions and at work. Individual citizens, social and work organizations can devote varying degrees of time to crime prevention efforts. A neighborhood security organization or a local citizens' crime commis- sion are examples of community involvement in crime prevention. Tenant patrols have also proven helpful in 14Community Crime Prevention, op. cit., pp. cc-B. 42 areas where there are several apartment buildings where because of congested conditions theft and assault have become quite simple. Collective efforts by citizens may be differ- entiated in terms of whether they are directed at strengthening the crime prevention activities of government agencies (criminal justice system agencies and others) or at bolstering anti-crime measures undertaken exclusively within the private sector. For instance the focus of a block crime prevention association is often on self-help measures designed to increase the safety of person and property over and above the protection afforded by local police. Other citizen groups, such as local chambers of commerce, may concentrate on the criminal justice system by sponsoring surveys of police effectiveness, proposing more effective methods or selecting judges, or promoting support for community based corrections. 5 Mobilizing community resources in a cooperative interdependent effort to combat both the symptoms and the causes of crime and delinquency will help to solve the problem. Present knowledge as well as resources, both human and material, will have to be coordinated if action programs are to be implemented and crime and delinquency prevented. This will necessitate the involvement of all interest groups within the community, including public and private agencies, businesses, and community resi- dents, including the youth. Many persons mistakenly assume that if a program is established to help young 15Community Crime Prevention, Op. cit., pp. cc-ll. 43 people, these good intentions will eliminate the need for youth involvement in the planning, initiating and per- petuating of the program. As pointed out earlier, if the youth are not involved, just as if community residents in general are not involved, community problem-solving programs will not receive the necessary support and will be doomed to failure, like so many programs in the past. CHANGING THE SYSTEM Because of changing social conditions and accelerated technology many of the institutions of social control as well as other agencies have to be altered and updated to keep pace with the changing times. Often community agencies become insulated and isolated from the very persons they should be serving. This contrib- utes to citizen frustration, alienation and apathy, and inhibits their active involvement in community problem solving. The bureaucratic "system" is even more alien and distrusted by persons who are recipients or poten- tial users of the services of the criminal justice system. Political interference and corruption also contribute to frustration-~retarding effective crime prevention. The perception of the criminal justice system as an alien force contributes significantly to the sense of political powerlessness rampant in [especially]_minority group communities. This sense is unaVoidably communicated to those in the --m<,.——.~.¥ A 44 community who become involved in criminal offenses. It should hardly occasion surprise, therefore, if their response to the inadequa- cies of prison regimes is expressed in ’. 'political' terms--The delinquent youths in these communities gain the impression early in their careers that the sanctioning judgments imposed on them are those of an establishment dominated by the majority ggoup rather than those of their own social world. Many of the problems between citizens and agencies can be reduced if there is an attempt to link the citizen with community agencies in a meaningful effort. With joint involvement bureaucratic isolation and political manipulation can be greatly reduced. One of the most pressing and serious problems existing today is political and governmental corruption, which hinders effective prevention efforts, perpetuates social problems and increases citizen frustration and apathy. Alert and concerned citizens can do much to identify corruption and see that dedicated public officials are placed in stra- tegic positions so that meaningful and effective prevention programs can be implemented. The National Advisory Commission on Criminal Justice Standards and Goals has develOped the following checklist to help citizens determine if corruption exists in their 16Delinquency Prevention Through Youth Develop- ment, U.S. Department of H.E.W., Youth Development and Delinquency Prevention Administration (Washington, D.C.: U.S. Government Printing Office, 1972), pp. 22-23. Va ,—._ l_~_.__ 45 community. The questions listed below are an abbrevi- ated list. 1. Does the mayor or governor have adequate statutory authority and control of various departments of the executive branch? 2. Is there an effective independent investiga- tion agency to which citizens can direct complaints regarding official misconduct? 3. Are kickbacks and reciprocity regarded by the business community as just another cost of doing business? 4. Is it customary for citizens to tip sanita- tion workers, letter carriers and other groups of government employees at Christmas time? 5. Is double parking permitted in front of some restaurants and taverns but not in front of others? 6. Is illegal gambling conducted without much interference from authorities? 7. DO investigations of police corruption generally result in merely a few officers being trans- ferred from one precinct to another? 8. Is there a special state unit charged with investigating organized crime and the conduct of public employees? - -——~’_l_w __. 46 9. Are government procedures so complicated that a "middleman" is often required to unravel the mystery and get through to the "right" people? 10. With each new administration does the police department undergo an upheaval--the former chief now walking the beat, and a former patrolman now chief, and similar arrangements? 11. Is there a wide gap between what the law declares illegal and the popular morality? 12. Are office-seekers spending more of their personal funds campaigning for political positions than the cumulative salary they would receive as incumbents during their term of Office? 13. Do city or state officials have interests in firms doing business with government? 14. Would officials financially benefit from projects planned or underway? 15. Are vice operations in certain sections of the city more or less tolerated by authorities? 16. Is it common knowledge that jury duty can be avoided or a ticket fixed? 17. Does the media report the existence of organized crime within the community or state? 18. Are state police authorized to operate in municipalities if there is reasonable su3picion of corruption there? 47 19. Are an extraordinary small percentage of arrested organized criminals convicted, and of those convicted, are sentences insignificant in relation to the crime and criminal? 20. Is the presence of organized crime repeat- edly denied even though no one has really looked? 21. Are records of disciplinary action against government employees available for inspection? 22. Is it common knowledge that candidates for judgeShips and for positions of lieutenant and above must receive the blessings of ward committee men? 23. Is morale among public servants at a low ebb? 24. Do state workers have to kick back a percentage of their wages to the party's campaign chest? 25. Do public officials attend conventions at the expense of private-sector groups? 26. Do bail bondsmen flourish within the community? 27. Do business establishments give certain public employees free meals, passes, discounts and the like? 28. Are sheriffs permitted to pocket the differ- ence between the sum they are authorized to spend for food 48 for jail inmates and what they actually spend for this purpose?17 The above criteria are only a few of the indi- cators that corruption may exist in a community. The most vigorous and well planned prevention program will not succeed.if corruption runs rampant. SUMMARY The concept of crime prevention is one of the most elusive and ambiguous notions in criminology theory, thought and literature. There is a complete absence of vigorous evaluation and planning in crime prevention programs. One of the reasons for the ambiguity is that crime prevention can be defined in many ways. The most prevalent description is to divide prevention into primary or pure prevention, and secondary or rehabilita- tive prevention. (Primary prevention centers around the interruption of potential criminal characteristics before they are allowed to develop and take place. Secondary prevention is concerned With dealing with the problem once the individual has come in contact with the formal criminal justice system, such as the police, probation and corrections. l7Communitqurime Prevention, op. cit., pp. 16-20. _.._-7 49 Another typology divides prevention into puni- tive prevention, corrective prevention and mechanical prevention. Punitive prevention is the threat of punishment with the assumption that punishment will forestall the criminal act. Corrective prevention refers to the attempt to eliminate potential causes, factors or motivations before the criminal act actually takes place. Mechanical prevention emphasizes placing obstacles in the way of the potential criminal so that he will find it difficult or impossible to commit an offense; for example, increased security measures and police protection. There is a need today for better understanding of crime prevention programs by the citizen and for more cooperation and coordination among the citizens in the community and the many different formal agencies within the community. There is also a need for coopera— tion among the agencies themselves (for example: school, juvenile court, the police and social workagencies).18 Most prevention programs use employment, educa- tion, recreation and counseling as their bases of Operation. 18Stanton Wheeler, Leonard Cottrell, Jr. and Ann Romasco, "Juvenile Delinquency--Its Prevention and Control," in Task Force Report: Juvenile Delinquency and Xguth Crime (Washington, D.C.: U.S. Government Printing Office, 1967), p; 424. ”w 50 The many programs that exist today need citizen support to be successful. Organized citizens' efforts are essential to help change existing social conditions, update present institutions, avoid corruption and allow crime prevention programs, on all levels, to reduce crime in society. Chapter 3 PART I. REVIEW OF THE LITERATURE: THE ORGANIZED NEIGHBORHOOD AND CRIME PREVENTION Professionals in the criminal justice field have long recognized the value of community-based efforts in crime prevention and control. Wide- spread application of this concept to the streets and neighborhoods of local communities throughout the nation represents a new thrust in the search for approaches to combating illegal activity. . . . The success of a variety of local crime pre- vention programs suggests that the necessary elements for effective programs are available in most communities. What is most commonly lacking is the will to act and the kpowledge of how to organize effective programs. The neighborhood is the ideal place to initiate a local crime prevention program. However, opinions differ as to the organizational ability of a neighbor- hood. Park states that neighborhoods begin as mere geographic entities and become localities with sentiments, traditions and histories of their own.2 Kotler points out that the opposite can also be argued; neighborhoods 1The Community and Criminal Justice: A Guide for Qgganizing Action, prepared for distribution at the National Conference on Criminal Justice, January 23-26, 1973 (Washington, D.C.), p. 1. 2Robert E. Park, The City (Chicago: University of Chicago Press, 1966), p. 3. 51 52 begin as political units with self—governing charters (like the city of Lakeview, now part of Chicago, or the town of Frankford, now part of Philadelphia) and they slowly deteriorate to mere geographic expressions. Daniel Moynihan's report develops the idea that the Negro lower-income community may have some form of social organization but there is no real community.4 Amos and 5 agree with this analysis of Wellford, along with Lunden the present state of the community among large segments of the population. With these different opinions on neighborhood organization, the question that arises is, can a neighborhood with a high crime rate organize itself with or without technical assistance to prevent and control crime? There are many who think it can. White, Leibow and Suttles6 demonstrate that there is definitely a form of community in even the most - 3Milton Kotler, Neighborhood Government (New York: the Bobbs-Merrill Company, 1969), p. 2. 4The Negro Family (Washington, D.C.: U.S. Depart- ment of Labor, Office of Policy Planning and Research, 1965). 5William E. Amos and Charles F. Wellford, Delin- ggency Prevention, Theory and Practice (Englewood Cliffs, New Jersey: Prentice-Hall, 1967), p. 245; see also Welter Lunden, "The Theory of Crime Prevention," British Journal 9§_Criminology, II (January, 1962), 213-28. 6William F. White, Street Corner Society (Chicago: University of Chicago Press, 1943); see also Elliot Liebow, Tglly's Corner (Boston: Little Brown & Company, 1967);see 53 transient areas of a city. The Report of the National Advisory Commission on Civil Disorders describes an organized neighborhood's response to preventing crime during the rioting and looting which took place in the Detroit riot of 1967. As the riot alternately waxed and waned, one area of the ghetto remained insulated. On the northeast side the residents of some 150 square blocks inhabited by 21,000 persons had, in 1966, banded together in the Positive Neighborhood Action Committee (PNAC). With professional help from the Institute of Urban Dynamics, they had organized block clubs and made plans for the improvement of the neighborhood. In order to meet the need for recreational facilities, which the city was not providing, they had raised $3,000 to purchase empty lots for playgrounds. Although Opposed to urban renewal, they had agreed to co—sponsor with the Archdiocese of Detroit a housing project to be controlled jointly by the archdiocese and PNAC. When the riot broke out, the residents, through the block clubs, were able to organize quickly. Youngsters, agreeing to stay in the neighborhood, participated in detouring traffic. While many persons reportedly sympathized with the idea of a rebellion against the "system," only two small fires were set—-one in an empty building.7 Donald Warren reports on three aspects of the 1967 Detroit riot: participation in the riot, counter- riot activity, and withdrawal from riot participation. also Gerald D. Suttles, The Social Order of the Slum, Ethnicity and Territory in the Inner City (Chicago: The University of Chicago Press, 1968). 7'The - Report. of the National Advisory Commission 9p_Civil Disorders (New York: The New York Times, 1968)] p. 960 54 Comparisons are made on data from both pre- and post-riot surveys. 1A typology of neighborhoods based on social interaction, reference group orientation, and values provided a framework for analysis. Neighborhoods with high riot activity showed little social interaction but tended to have positive reference orientations. Neigh- borhoods where little riot involvement occurred lacked social organization more than other areas. The findings highlight the need for focus on the more immediate social unit, the neighborhood, in the black ghetto.8 Peter Morris in looking at the stability of a neighborhood states that in a Philadelphia study of urban renewal 17 percent of the families had been living in the homes demolished less than a year, 40 percent for more than ten years and half of these had lived in the city more than twenty years. In one cleared area of Baltimore, 18 percent had been there less than a year, a third more than ten years. In a Chicago program, only 7 percent had been less than a year in the houses from which they were cleared and the median length of a residence was eight years.9 8Donald 1. Warren, "Neighborhood Structure and Riot Behavior in Detroit," Social Problems, 16:4 (Spring, 1964). PP. 464—84. 9Peter Morris, "A Report on Urban Renewal in the United States," The Urban Condition, ed. Leonard G. Duhl, (New York: Basic Books, Inc., 1963), p. 123. 55 This demonstrates that many neighborhoods do have a number of established residents and they have a potential for some type of stable community organization. Irwin Sanders states that community problems arise when various groups keep to themselves without developing a community wide perspective or fail to realize that much of what they do has a bearing upon what others do.10 A. J. Cervantes, Mayor of St. Louis, testifying before the National Advisory Commission of Civil Dis— orders states: We have found that ghetto neighborhoods cannot be operated on from outside alone. The people within them should have a voice, and our experi- ence has shown that it is often a voice that speaks with good sense, since the practical aspect of the needs of the ghetto people are so much clearer to the peOple there than they are to any- one else.11 Betty Sarchet states on community organization. The first principle to be kept in mind is that the neighborhood planning process can be a joint enterprise of planners and citizens only if the community is taken into the effort from the begin- ning. While this may sound alarming to the professional planner who has never tried it there are immediate and long range values which result 10 Irwin T. Sanders, The Community: An Introduc- tion to a Social Sygtem (New York: The Ronald Press 00., 1966). PP. 29— 52. Report of the National Adviso_y Commission on Civil Disorders, U. S. Crime Commission Report (New York: Bantam Books, 1968), p.287. 56 in greater rewards than go it alone methods. No one is better qualified than the citizens of a neighborhoo dzto speak of the needs and desires of the people. Levine points to the need to truly involve the affected persons in the planning process and avoid tokenism as he states: In recent years, 'citizen participation in planning' has become recognized as a necessary tool by most planning agencies. It has become as popular a panacea for the planner as a new econ- omic base study or a recently completed metropolitan transportation survey. However, the actual involvement and genuine participation of citizens in the planning process is seldom achieved. Too frequently, it consists of a limited discussion of only a portion of the plan- ning commission's completed work by a group carefully selected by a mayor or chamber of com- merce official. There is usually little attempt to gain continuity of citizen review and discus- sion from the early stage of preliminary studies to the final drafts. Frequently, the vieWpoints are homogenized with a mutual bias or with a similar lack of imagination or knowledge. When it is realized occasionally that another point of view might be desirable, then one representative of a trade union, a minority group, or a neigh- borhood association is appointed to speak for his entire group. There are differing methods by which the citizens can become involved. James Q. Wilson refleCts upon some of the different approaches by stating: 12 Bettie B. Sarchet and Eugene D. Wheeler, “Behind Neighborhood Plans: Citizens at Work," Journal 9t_the American Institute of Planners, XXIV (August, 1958), 188. 13 Aaron Levine, "Citizen Participation," Journal 9§_the American Institute of Planners, XXVI (August, 1960): 195. ‘ 57 Among community organizers two radically dif- ferent strategies have been evolved to produce citizen participation. . . . One recognizes the special character of depressed lower income neighborhoods and seeks to capitalize on it. The most prominent and controversial exponent of this approach is Saul D. Alinsky, executive director of the Industrial Areas Foundation of Chicago. According to a recent account, 'Alinsky eschews the usual appeals to homeowners' interests in con- serving property values or to a general neighborhood spirit or civic pride-—appeals, in his View, that apply only to middle-class neighborhoods.’ Instead, he 'appeals to the self-interest of the local resi- dents and to their resentment and distrust of the outside world. ' By stimulating and focusing such fears, an organization is created which can then compel other organizations--such as the sponsors of an urban renewal project—-to bargain with it. . . . Many, probably most, planners and community organizations specialists reject Alinsky's tactics. To them, his methods produce and even exacerbate conflict rather than prevent it, alienate the neighborhood from the city as a whole rather than bring it into the normal pattern of civic action, and place a premium on power rather than on a cooperative search for the common good. The alternative strategy of most community organizers is to stimulate the creation of neigh- borhood organizations which define 'positive' goals for their areas in collaboration with the relevant' city agencies and in accord with the time ichedule which binds most federal renewal efforts.l Sower, in aligning himself with the latter strategy as posed by Wilson, suggests that business and industrial organizations and city government are not the permanent enemies of the people. He indicates that the peOple of a community can work with the varied agencies E 14James Q. Wilson, "Planning and Politics: Citi- zen Participation in Urban Renewal," in Perspectivescnithe American Community,1iBook of Readings, ed. by Roland L.4‘_ Warren (Chicago:* Rand McNally, 1966), pp. 482-83. 58 of a city in bringing about the common good for that community. In other words, many peeple and organizations have a positive identification of good will for their local city community as well as with the development of their states and the nation.]'5 Fellin and Litwak list a number of conditions which help promote cohesion in a neighborhood. Among the list are the attitudes individuals have toward themselves as strangers in a neighborhood, the presence of posi— tive group norms toward integrating the stranger and the use of localized voluntary organizations.16 Jane Jacobs sees a successful city neighborhood as a place that keeps sufficiently abreast of its prob- lems so it is not destroyed by them. An unsuccessful neighborhood is a place that is overwhelmed by its defects and problems and is progressively more helpless before them. She states that there would be more evi- dence of basic solidity if one thought of city neighborhoods as mundane organs of self-government. The failures with city neighborhoods are ultimately failures in localized self-government and the successes ‘. . Christ0pher Sower and Earle L. Snider, "Organi- zmg Organizations for Urban Development" (unpublished rePOrt. March 3, 1967), pp. 1—6. h TGPhillip Fellin and Eugene Litwak, "The Neigh- °rh°°d In Urban American Society," Social Work, 13:3 (July. 1968), pp.- 72-80. C: are '0'; I:I.Illlu .U.‘ ci 0: :T‘ - nd urba a. A]. r . t - \ I u I l u... vi 2 .2 n3 #1 III M» .ui a: 1. L. V . #4 Ca hU DP. \VA 8 loin s 5 LR .G Dr - h.» u G- ‘r"'.1 T“ .1 I: 8 III III I. I. IT I . I (‘.ll .. II N T/ .. 59 are successes at localized self—government. By self— government she means both the informal and formal self- management of society. In answer to Reginald Essacs of Harvard who questions whether the concept of neighborhood in big cities has any meaning at all because of the mobility of the people, Jane Jacobs states that even the most urbane citizen cares about the atmosphere of the street and district where he lives. No matter how much choice one has outside of his district the common run of city people do depend greatly on their neighborhoods for the kind of everyday lives they lead. Looking at city neighborhoods as organs of self-government, Jacobs sees evidence that only three kinds of neighborhoods are useful: the city as a whole, strict neighborhoods, and districts of large, subcity size, composed of 100,000 people or more in the case of the largest cities. The chief function of a successful district is as a mediator between the indispensable, but inherently powerful city as a whole. An example is, ridding an area of a drug peddler. The city would provide the expertise in police detectives and the district would provide the COOperation and support. A reasonably effective distriCt usually accrues to itself, with time, considerable political h_,_. *fl*—.—‘— 60 power. It eventually generates a whole series of individuals who are able to operate simultaneously at street scale and district scale and in neighborhoods of the city as a whole. The cross-links that enable a district to function as a unit are neither vague nor mysterious. They consist of working relationships among specific peOple, many of them without much else in common than that they share a fragment of geography. Even a ghetto after it has remained a ghetto for a period of time builds up its social structure and this makes for more stability, more leadership, more agencies for helping the solution of public problems.l7 Senator Fred Harris and Mayor John V. Lindsay in their commission on the cities in the 1970's report state that every place they visited they found a hard— headed cadre of peOple who expressed that they would have to rely on themselves for much of whatever they expect to receive. They found people banding together reaching for the levers of power in order to have some say about the public-assistance regulations under which they live, the design of the public housing in which they live, the behavior of the police who patrol their streets, and the plans for "renewing" their neighborhoods. 17Jane Jacobs, The Death and Life of Great Ameri- ggn Cities (New York: Random House, 1961), Chapter 6. 61 The community groups that the committee saw were, for the most part, new and essentially untested, and their members could not be sure that their respective groups would have effective enough local leadership and community support to survive long. But there was hope and determination. The report cited Frank Ditto's East Detroit methadone clinic which is financed by neighborhood contributions rather than government funds. Two activities the ghetto peOple indicated a desire to control most urgently were education and policing. The committee stated that urban Indian centers are springing up with Indians themselves taking the lead in organizing groups in the neighborhoods to help newcomers adjust to city life and provide effective voices for Indian communities. To an ever-increasing extent the committee saw evidence of American institutions, public and private, losing the confidence of the American people. Community involVement in school decisions repre- sents the first challenge to the professionals, whose efforts to reform the system have lost credibility even with private citizens. Community control in many ways is a legitimate desire of peOple who have seen others ruin the institution their children need for survival. 62 Their claim that "the school is our school" is not unreasonable. State and local governments handle education, policing and urban redevelopment but this could be done more effectively on a neighborhood by neighborhood basis.18 The Committee for Economic Development (CED) suggests a division of the police function, with control over laboratories, records, communications, detective work, and intelligence being regional, and control over street patrol being local.19 Robert M. MacIver relates his experience with a program where the neighborhood residents were organized through a neighborhood committee, neighborhood volunteers and a small professional staff. Block captains reported any youngsters who needed aid, counsel or support in any way. This was a Puerto Rican neighborhood in the South Bronx of New York City. It proved to be much more successful than the city-wide programs he established 18Senator Fred R. Harris and Mayor John V. Lindsay, The State of the Cities, Report of the Commis- sion on the CitIes in the '70's (New York: Praeger Publishers, 1972), pp. 6, 12, 17-18, 29, 32, 59. 19A Statement by the Committee for Economic Development, Research and Policy Division, New York, February, 1970. 63 as the director of the City's Juvenile Delinquency Evaluation Project.20 Karl Menninger recommends a large number of community safety centers or crime prevention centers in each problem neighborhood. These could serve as police substations and could contain offices for neighborhood probation and parole teams, and crime prevention materials. Dr. Menninger reports on a group of concerned neighbors in 1962 who formed an anti-crime crusade in Indianapolis and demanded safe streets. They evaluated the efficiency of the law enforcement agencies and their needs and analyzed the operation of the courts. This was one of the factors why the crime rate, in 1965, dropped in Indianapolis for the first time since 1959, while the national rate rose six percent. Dr. Menninger quotes Edmond Cahn who states that the public must be consumers of justice, instead of merely providers of it, supplying it, endorsing it, paying for it, and deploring its poor distribution. Dr. Menninger also quotes Charles D. McAtee, director of Penal Institutions for the State of Kansas: 20Robert M. MacIver, The Prevention and Control 9§_Delinquency (New York, Atherton Press, 1967), P. 135. 64 If we really intend to combat the problem let's start at the grassroots level with community‘ action committees who can best pool and coordinate the local resources available to combat crime. I believe that an informed, concerned, and aroused citizenry can have a tremendous impact on the causative factors of crime and delinquency, and that local community committees, dedicated to this effort and utilizing local community resources, can not only prevent crime, but can mOre ade- Lquately provide reasonable alternatives to imprisonment, for some of those who are involved in criminal offenses. Dr. Menninger states that public involvement will produce public education and once the public knows that the present pretentious criminal justice procedures are stumbling and "endangering us all" they will rise to the occasion and change the situation.22 James Q. Wilson states that the community within broad limits, can determine police policy when they observe some general condition for which the police can be held responsible. Law enforcement, like any system of compliance, cannot effectively Operate without the support and COOperation of those subject to it. New bases of power are being forged in the neighborhoods to perform, out of community-regard, 21Charles D. McAtee, "An Overview of the Admini- stration of Criminal Justice in Kansas," Report to the Chairman of the Charitable, Benevolent, and Penal Insti- tutions Committee of the Legislative Research Council, State of Kansas (September 20, 1966), p. 8. 22Karl Menninger, M.D., The Crime of Punishment (New York: The Viking Press, 1968). Pp. 268, 275. 65 rather than selfish motives, the functions once per- formed by the political party dominant in the area. Humanizing the police will be one of these. Wilson does not view as a simple matter letting each neighborhood, usually defined along lines of class and race, determine its own style of law enforce— ment. Giving central city neighborhoods control over their own neighborhood police would be to risk making the police power an instrument for inter-neighborhood conflict. Besides deep racial divisions, Wilson believes that there are issues of order maintenance and law enforcement in the central city that are of such emo- tional and political significance that the police are already under intense political pressure from competing forces seeking to exploit these issues. Allowing the police to be governed by neighborhoods could only intensify that pressure, putting them at the mercy of the rawest emotions, the most demagogic spokesman and the most provincialconcerns.23 The Task Force Report: The Police encourages the use of citizen advisory committees from the neighbor- hoods to work with the police. Unfortunately, many of 23James Q. Wilson, Varieties of Police Behavior (Cambridge, Massachusetts: Harvard UniverSIty Press, 1969). pp. 228—30, 286-88. 66 the advisory committees that now exist consist mainly of people who agree with the police and do not raise ques- tions.24 Such a limited focus is basically self- defeating. All elements of a particular neighborhood should be represented. The police can use such community gatherings to discuss and elicit citizen views of police enforcement practices in that particular neighborhood. Good commu- nication can sometimes result in community acceptance of legitimate crime prevention activities. The modern urban police department needs closer citizen contacts to maximize its integration into neigh- borhood life. Both Michigan State University and University of California studies found that community relations units have not generally won the confidence of minority groups. (Task Force Report: The Police.) Groups of citizens in a few neighborhoods complement police preventive patrols. In Washington D.C., several private citizens with "ham radios" in their cars have formed a "React Program" to patrol three high crime precincts on weekends. ‘Their function is merely to trans- mit information to a base station, which relays it to 24Raymond Galvin and Louis Radelet, "A National Survey of Police and Community Relations" (East Lansing: Michigan State University, 1967), p. 72. 67 the police dispatcher for appropriate police coverage or surveillance. The residents of many neighborhoods carry on their own watchdog activities, keeping an eye on absent homeowner's property, reporting suspicious incidents and, in some cases, making neighborhood rounds. ElMonte, California, has a "block mother" program sponsored by the local PTA in which one specially selected mother in each block has an Open house with a sign in the window that she will help children who are lost, troubled by strangers or hurt. The block mother also identifies children in need of supervision, trouble spots, and suspicious activities going on in the block. Another aspect of crime prevention involves citizen help in reintegrating previously institutionalized offenders into the community. Private citizens can provide the kind of individual backup in the community that is critical to the success of the rehabilitative effort.25 Harvey Treger predicts that in the future proba— tion officers will have to help offenders organize with people in their community who have similar needs so they 25The President's Commission on Law Enforcement and Administration of Justice, Task Force Report: The Police (Washington, D.C.: U.S. Government Printing Office, 1967), pp- 151, 156-58, 223-25. 68 may support one another and explore socially acceptable methods of alleviating their uncomfortable and unde- sirable situations and conditions.26 In January of 1973, Hennepin County Court Services in Minneapolis began a Neighborhood Probation Project. Professional probation counselors with neigh— borhood residents set up a neighborhood probation office emphasizing the use of neighborhood paraprofessionals and former offenders.27 The Urban Coalition strongly states its stand on community involvement in the area of law and order. At a time of growing realization of the neces- sity for community support of law enforcement, there is only limited community involvement in the drafting of plans. The process is being dominated to a considerable extent by profes— sionals from law enforcement, courts and corrections, creating the danger that the plans will reflect only their internal needs without putting them in the broader context of the criminal justice system and its role in an urban society. Law enforcement is impossible without a high level of community cooperation. If we forfeit 26Harvey Treger, "The Presentence Investigation," Crime and Delinquency (Parmus, New Jersey: National Council on Crime.and Delinquency, July, 1971), pp. 316-25." ' 27Neighborhood Probation Program, Hennepin County Court Services, Minneapolis, Minnesota, 1973. 28The Urban Coalition and Urban America, Inc., Law and Disorder: State PlanningtUnder the Safe Streets Act (Washington, D.C., 1969): p. 4. 69 the cooperation of citizens in the high crime areas, we will have lost more ground than we gained. Malcolm Klein comments that: In considering the criminal justice system, we must add at least two components to the usual listing of agencies; specifically we must conceive of the system as including both the community and its agents (schools, private agencies, the family, etc.) and the offenders, real and suSpec- ted, for whom the system acts as processor. Marvin Wolfgang believes that: All parts of the criminal justice system should be accountable to the public at large, to the victim, and to the offender. Moreover, each subpart of the system should be accountable to the immediately preceding subpart. In January of 1971, Commissioner Patrick V. Murphy implemented a program called "Operation Neighbor— hood" in New York City. Sergeants assigned to a precinct sector were called Neighborhood Chiefs of Police. Commissioner Murphy stated that the development of a new spirit of cooperation, understanding and respect 291bid., p. 7. 30Malcolm Klein, "System Rates: An Approach to Comprehensive Criminal Justice Planning," Crime and Oglinquency (Parmus, New Jersey: National Council on Crime and Delinquency, October, 1971), pp. 355-72. 31Marvin E. Wolfgang, "Making the Criminal Jus— tice System Accountable," Crime and Delinquency (Parmus, New Jersey: National Council on Crime and DeIInquency, January, 1972), pp. 15-22. 70 between the police officer and the citizen can make the neighborhoods safer and more peaceful.32 In 1969 a number of white working class organiza- tions——many of them neighborhood improvement.associations-- banded together in Southeast Baltimore and formed a problem—solving alliance known as the Southeast Community Organization (SECO). They have publicly stated that their enemy is not the black man. They see the racial issue as a fear exacerbated by the politician who has deliberately set group against group in order to retain power. When people are powerless, they have reason to be afraid. When they organize themselves in order to use the potential power that they do have, then they are able to act upon issues and genuine concerns, instead of reacting out of fear.33 . 32Press release, Public Information Division, Police Department, City of New York, December 30, 1970. . 33Freye Gaillard, White Working-Class Groups Unite (East Lansing, Michigan: Michigan State University, Office of Human Relations, Institute for Community DevelOpment and Services, July 2, 1971). 71 SYMPOSIUM ON NEIGHBORHOOD AND CITIZEN INVOLVEMENT34 A History . The citizen since the beginning of the Republic has participated in government by voting and holding office. He has also been involved through service with civic groups. The first three decades of the 20th century witnessed the growth of other types of direct relationships with the federal government. These included: .the role of tribal organizations in dealing with the Bureau of Indian Affairs and the Indian Divi- sion of the Public Health Service; the responsibilities of citizen members of Selective Service Boards; the relationships between the Department of Agriculture and former committees; and the activities of tenant's associations in low-rent public housing projects.35 These early federal-private relationships were important insofar as they firmly established the idea that citizens have a legitimate role to play in govern- ment policy making, but the real beginning of the 34Repprted in the Public Administration Review 3:189—246 {May/June, 1972).. (Entife issue devoted to Symposium.) 35W. Brooke Graves, American Intergovernmental Bglations: Their Origins, Historical Development and Qtrrent Status (New York: Charles Scribner's Sons, 1964), Pp. 477-539, 857-61. 72 citizen participation movement as it is known today can be traced to the immediate post-WOrld War II period. Starting in the late 1940's and continuing for the next 20 years, the federal government assumed the leadership role in this area.36 Carl W. Stenberg37 divides the major citizen participation developments into three time periods. He entitles the first phase the Nonindigenous Citizen as Advisor-Persuader (1949—63). 36See Melvin B. Mogulof, Citizen Participation: A Review and Commentaty of Federal Policies and Prac- tiCes (Washington, D.C.: The Urban Institute, January, 1970); Peter Marris and Martin Rein, Dilemmas of Social Reform: Poverty and Community Action in the United IF States (New York: Atherton Press, 1969); James L. Sundquist and David W. Davis, Making Federalism Work: Study of Program Coordination at the Communitnyevel (Washington, D.C.: The Brookings Institution, 1969); Hans B. C. Speigel (ed.), Citizen Participation in Urban DevelOpment, 2 vols. (Washington, D.C.: NTL Institute for Applied Behavioral Science, 1968); Sherry R. Arnstein, "A Ladder of Citizen Participation," figurnal of the American Institute of Planners, Vol. 35 (1969), pp. 216-24; Melvin Mogulof, "Coalitian to Adver- sary; Citizen Participation in Three Federal Programs," Journal of the American Institute of Planners, Vol. 35 (1969), pp. 225-32; Daniel P. Moynihan, Maximum Feasible Misunderstanding: ~Community Action in the War on Poverty (New York: The Free Press, 1969); Herman G. Berkman, et al., Report of HUD/NYU Summer Study on Citizen Involvement in Urban Affairs (Washington, D.C.: U.S. Department of Housing and Urban Development, April, 1969); and International City Management Associ- ation, "Citizen Participation in Model Cities," Urban Data Science, Vol. 2 (July, 1970). '——"‘— . 37Carl W. Stenberg,"Citizens and the Administra- tive State: From Participation to Power," Public Administrative Review, 3:190—98 (May/June, 1972). 73 From the end of the 1940's through the beginning of President Johnson's administration, several federal programs had citizen participation components. Three of the most important were Urban Renewal, the WOrkable Pro— gram for Community Improvement, and the Juvenile Delinquency Demonstration Projects, excluding Mobiliza— tion for Youth. Nonindigenous citizens were involved in these programs in an advisory and persuading capacity. Residents of the target areas were not generally involved in the project planning and development. The quality of the citizen's input was often poor. Public officials advised, recommended, and persuaded citizens as to the need for and design of a project, rather than vice-versa, and this "educating" of citizen members usually resulted in long delays in planning and program- ming. In the final analysis, citizens had little or no influence on official policy decisions. According to Stenberg, the second period is from 1964;1968 and is called the Indigenous Citizen as Partner-Adversary. .Here, in theory, the Community Action and Model Cities programs were departures from the style of citizen participation typical of the pre-Johnson Administration federal programs. The type of citizen changed from the predominantly white affluent person to mainly poor minority group members. They were generally neighborhood, rather than city-wide oriented programs. 74 Many citizen representatives were elected to the boards of Community Action Agencies (CAA's) or City Demonstration Agencies (CDA's) in community forums, and were accountable to a neighborhood constituency. Citizens were accorded a role in policy making, as well as serving in an advisory capacity. Neighborhood organi- zations and their representatives were considered to be partners with government agencies in a coalition rela- tionship and particularly with respect to CAA's, they were often viewed as the controlling force in deciding programs to be funded in neighborhood areas. A more traditional type of citizen input was found in the neighborhood councils and citizen advisory or planning groups that were set up to consult with multiservice centers, community development corporations, and other neighborhood-based agencies responsible for the delivery of local public services. Objectives in the Community Action and Model Cities programs were to build black community identifi- cation, to develop indigenous leadership in order to unite diverse groups of the urban poor and to democratize the bureaucracy by having formally organized representa- tive neighborhood decision-making bodies serve as spokesmen for the poor and bargain with the power structure in their behalf. 75 Some of the objectives have been realized but the impact of citizen involvement in Community Action and Model Cities has varied widely. In some cities participation has not amounted to actual shared deci- sion making. It is more on the collaboration and placation level. In other areas, power was shared with citizens because the citizens took the initiative rather than waiting for the city. Confrontation produced both a meaningful citizen role in decision-making and alienation. Some of the same problems arose, such as the policy boards still did not truly represent the target neighborhoods. Residents who were involved generally came from upward mobile working class people. The hard-core poor, the unemployed, the young and the militant were still not participating. The poor who were employed in staff positions often were silenced by the mere fact that they now had jobs. Another result of this type of citizen involvement was the difficulty experienced by the citizens to develop proposals and to plan and implement programs. Haggstrom states, The poor, by virtue of their situation, tend to be more dependent than other groups on a larger number of powerful persons and organiza- tions, which are often very unclear about the basis for their actions and unpredictable in their decisions, and which further render the poor 76 helpless by condescending or hostile attitudes, explicit verbal communications which state or imply the inferiority of the poor. The dependency of the poor is not primarily a neurotic need . . . rather it results from a deprivation of those minimal social resources, at every period of their lives.38 The third period of citizen involvement runs from 1969 to the present and is called Regionalism- Decentralization. Stenberg notes that some observers argue that little new of significance has occurred at the local level on the citizen participation front since the establishment of the Model Cities program in 1966. They contend that recently such involvement has taken on an important areawide rather than neighborhood dimension. Pursuant to Title I of the Omnibus Crime Control and Safe Streets Act of 1968, state law enforcement planning agencies have set up state-level policy boards and regional advisory councils. Citizen representatives serve on these as co-equals with state and local elected officials and police, court, prosecu- tion and corrections professionals in making decisions in connection with formulating comprehensive criminal justice plans and funding programs to implement them. 38Warren C. Haggstrom, "The Power of the Poor," ngtal Health of the Poor, eds. Frank Riessman, Jerome Cohen and Arthur PearlfiYfiew York: Macmillan, 1964), pp. 212-13. ' 77 Despite these centralizing tendencies, Stenberg states, other experts contend that the neighborhood is presently and will continue to be, where the action is. Neighborhood councils representing residents have been formed. Community service officers, neighbormen, or ombudsmen have been appointed to answer inquiries and perform liaison functions between city hall and the neighborhoods. The results of a survey of all cities over 25,000 population on citizen participation and decen- tralization of services conducted by the Advisory Commission on Intergovernmental Relations in c00peration with the National League of Cities and the International City Management Association suggest that most top city chief executives or administrative officials consider these approaches to have been effective. Seventy-two percent of the replies from 226 mayors, city managers and heads of planning, community development and community relations agencies agreed with the statement that citizen participation-decentralization had been "a difficult but very worthwhile experience resulting in increased trust and understanding between citizens, city hall officials and public administrators." Twenty—three percent of the responses reported that it had resulted in very little change in citizen-city hall official-public administrator 78 relations. Only five percent indicated that it had led to a deterioration of these relationships.39 Stenberg believes that while the more tradi- tional forms of involvement will probably characterize the federal programs during the 1970's, citizen partici- pation itself will very likely move in the direction of 40 The community control and neighborhood government. growth of neighborhood corporations and community control of public services and the emergence of neighborhood sub-units will have considerable implications for inter- governmental relations. This "micropolitanization" of our nation will further fragment local government 39Carl W. Stenberg, "Decentralization and the City,“ 1972 Municipal Year Book (Washington, D.C.: International City Management Association, 1972). 40Hans B. C. Speigel and Stephen D. Mittenthal, Neighborhood Power and Control: Implications for Urban Planning (Washington, D.C.: U.S. Department of Housing and Urban Development, November, 1968); Center for Governmental Studies, Public Administration and Neigh- borhood Control: Conference Proceedings (Washington, D.C.: The Center, 1970); George J. Washnis, Municipal Decentralization (Washington, D.C.: Center for Govern- mental Studies, 1970); Howard W. Hallman, Community Control: A Studyiof Communitprorporations and NEIgh- bprhood Boards (Washington, D.C.: Washington Center for Metropolitan Studies, 1969); Committee for Economic Development, Reshaping Government in Metrgpolitan Areas (New York: The Committee, February, 1970); Citizens League, Sub—Urbs in the City: Ways to Expand Partici- pgtion and Representation in Minneapolis Government (Minneapolis: The League, 1970); and Mario Fantini, Marilyn Gittell, and Richard Magat, Community Control and the Urban School (New York: Praeger Publishers, W 1970). 79 structure, creating new problems in coordinating federal and state delivery systems. Financing of these micro- politan units creates a real problem. Some advocate revenue sharing or a neighborhood sub-unit to levy taxes. The role of state governments in citizen partici- pation has been virtually ignored. Most federal programs having citizen participation components have bypassed the states. This policy cannot be continued in the future because it appears that the states will have more and more of a fiscal role regarding community groups. Joseph F. Zimmerman41 declares that the rhetoric ' flows freely with shouts of "power to the people," "black power" and "community control" and according to the new breed of municipal reformer the solution to many of the urban problems is the devolution of political power to the neighborhood level. He maintains that pOpular support for the cre- ation of neighborhood governments is linked with the changed racial composition of the large cities. Since 1945 there has been a mass migration of poor blacks to the central cities and a flight of middle-class whites to the suburbs. Only five million of the nation's 41Joseph F. Zimmerman, "Neighborhoods and Citi- zen Involvement,“ Public Administration Review, No. 3 (May/June, 1972). 80 22 million blacks currently live in rural areas. New York City absorbed approximately two million blacks and Puerto Ricans between 1945 and 1970. Central cities lost their white population at an annual rate of 150,000 between 1960 and 1966, and nearly 500,000 between 1966 and 1968.42 The growing popularity of the concept of commu- nity control is a reaction against a professionalized and specialized bureaucracy insulated from influence by citizens and to some extent by elected officials, Zimmerman concludes. He refers to Milton Kotler regarding the role of the police under a neighborhood government concept in stating that the police would no longer be viewed as a colonial army of occupation sub- servient to the will of the downtown establishment or "mother country." He also refers to Howard W. Hallman's study of neighborhood boards in a number of cities. Hallman reports that residents see the neighborhood boards as theirs, not as a distant and impersonal bureaucracy.43 Hallman concludes that neighborhood corporations have 42U.S. Bureau of the Census, Population Char— agteristics (May, 1969). 43Howard W. Hallman, Community Corporations and Neighborhood Control (Washington, D.C.: Center for Governmental Studies, 1970). p. 8. 81 a spotty record; some have been successful and others are experiencing difficulties in surviving. Success is attributed to the development of community unity and a competent executive director and staff. To date, corporations do not measure up well in terms of accounta- bility, citizen participation and representativeness. Neighborhood opinion is not always solicited by the corporations and public hearings usually are not held before decisions are made.44 Zimmerman warns that it would be an error to make firm conclusions based on the limited experience of corporations since the mid-1960's. Success is apt to come incrementally, he states. Another criticism of asystem of neighborhood governments is that such a system will resurrect parochialism and result in the neglect of city-wide concerns and eventually lead to dismemberment of the city. Zimmerman rejects this argument provided a federated city is created and the city-wide government is given adequate authority and finances to provide for its assigned functions. Concentration on neighborhood problems by residents may be viewed by some observers as a type of parochialism, but it can also be seen as a 4Howard W. Hallman, Community Control: A §§udy of Community Corporations and Neighborhood Boards (Washington, D.C.: Washington Center for Metropolitan Studies, October, 1969), p. 30. 82 natural and healthy manifestation of citizen concern with public problems that may ultimately induce some citizens to develop interest in city—wide and metropolitan problems. Zimmerman agrees that leadership in ghetto areas is a concern. Yet leaders can be developed and trained as the poverty program demonstrated. The task of developing leadership in ghetto neighborhoods is a huge one and federal, state and local governments as well as private organizations would have to provide considerable technical assistance. Zimmerman advances the hypothesis that the best prospect for implementing a system of neighborhood government would be in a city where black voting strength is approaching a majority. Such a system may receive growing white support with the passage of time for five primary reasons. 1. Whites may become convinced that neighborhood governments will relieve them of legal responsibility to help the residents of black ghettos. 2. Whites may perceive neighborhood government to be a vehicle for the preservation of white control in certain neighborhoods in a city coming under black domination. 3. The creation of neighborhood governments would legitimize existing racial segregation and 83 reduce pressures for busing of students, and integration of housing and schools. 4. By creating neighborhood governments, black militants may be transformed into moderate political leaders who will deal responsibly with city officials. 5. wealthier neighborhoods might favor the creation of a system of neighborhood government for tax reasons. Residents might prefer to raise taxes for the benefit of their own neighborhoods instead of having the city raise taxes and Spend much of the proceeds in ghetto areas. Many city governments in the 1960's became acutely aware of the extent of political alienation, and sought to eliminate it by administrative innovations—— mini-city halls, night mayors, complaint bureaus, neighborhood meetings, neighborhood councils, and task forces. These experiments were premised on the belief that improved communications, coupled with decentralized delivery of services, would overcome "politicosclerosis" or hardening of the arteries of political communication and improve the delivery of services on the neighborhood level, thereby dissipating political alienation. Although most of the innovations are relatively new, a 84 survey of a number of large cities reveals that the I I I I I I 45 innovations have achieved several of their objectives. James Riedel postulates nine realities of citizen participation. (1) Even under the best of conditions, most» people tend to avoid participation and involve- ment. (2) Our political system favors group over individual action, coalitions of groups (parties) even more so, but most individuals are activated only by single issues and are turned off by coalitions. (3) Localizing control does not necessarily increase participation. (4) Resistance to action tends to increase with the seriousness of the problem. (5) Citizen groups working outside the "system" tend to handicap themselves. (6) Official and citizen views of participa- tion tend to be inherently contradictory. (7) Officially sponsored citizen participation tends to be cooptation rather than representation. (8) Direct citizen action, forcing govern- mental response though seemingly hostile to the system, has strong historic support. (9) In this pragmatic society, the appropriate form 03 citizen participation is the one that works. 6 SAUL ALINSKY AND MILTON KOTLER In order to demonstrate the viability of the neighborhood to organize itself, with or without technical 45Joseph F. Zimmerman, "Heading Off City-Hall Neighborhood Wars," Nations Cities (November, 1970), PP- 18—21, 39. 46Jameszx.Riede1, "Citizen Participation: Myths and Realities," Public Administration Review, No. 3 (May/June, 1972), pp. 211-20. u" 85 assistance, to work towards crime prevention, the work of two men should be considered in some detail. They are Saul Alinsky and Milton Kotler. Saul Alinsky--People's Organizations - The late Saul Alinsky was considered one of this country's foremost organizers of community action groups. Born in Chicago, he was actually trained as a criminolo- gist. As a young man he was awarded the Social Science Graduate Fellowship in Criminology at the University of Chicago. For his field work he moved in with Al Capone's gang as a silent observer. He jokingly said that this is what the sociologists call a "primary rela- tionship." At the end of his second year in graduate school he took a job with the State Division of Criminology and never went back to finish his doctorate.47 Saul Alinsky had many community projects. In 1938 he studied the problem of community deterioration in Packington, Chicago. This was a predominantly Catholic area centered around the packinghouses which had hired immigrants a generation earlier and now employed the second generation families. A lack of communication among a number of the various lingual and 47Marion K. Sanders, The Professional Radical: Conversations With Saul Alinsky_(Evanston, Illinois: Harper and Row, 1970) . 86 ethnic groups had led to much misunderstanding and suspicion. Alinsky convinced the neighborhood leaders to plan and work together for the welfare of their total community. A council of citizens was formed and it became the People's Organization, called "Back of the Yards Council." One typical procedure of the Cohncil was to hold the hearings of juvenile offenders with their parents, teachers, employers and clergymen in attendance as codefendants on trial. All those respon- sible for the youth's rehabilitation worked together in the probationary planning.48 Saul Alinsky and his team of professional organizers had more than forty community-based People's Organizations. They were designed to prevent crime by uniting the citizens in organized groups to strive for social reform and fight "against cheating merchants, slum operators, school segregation, and other basic "49 issues. Alinsky writes in Reveille For Radicals that the present power age defines and evaluates everything in terms of power. It is universally assumed that the function of a People's Organization is similar to that 48 - Amos and Wellford, op. Cit., p. 119. 49Saul Alinsky, "Citizen Participation and Community Organization in Planning and Urban Renewal, Speech published by the Industrial Areas Foundation (Chicago, 1962), p. 9. ; 87 of any other kind of organization, which is to become so strong and so powerful that it can achieve its ends.50 The two major functions of a People's Organiza- tion are first, to generate power that will be controlled and applied for the attainment of a program and , secondly, to strive for the realization that only through organization can a peOple's program be developed. He states that compromise and common agreement are needed. There should not be too much concern with specifics or details of a people's program. It is more important to get people interested and partici- pating in a democratic way. No clique, caste, power group or benevolent administration can have the peOple's interest at heart as much as the people themselves. The life principle of democratic planning is an awakening in the whole people of a sense of this common moral purpose. There is not one goal, but a direction. There is not one plan, once and for all, but the conscious selection by the people of successive plans. Alinsky points out that the first basic fallacy of conventional community council programs is that they 50Saul Alinsky, Reveille For Radicals (Chicago, Illinois: University of Chicago Press, 1946), Chapters 4, 5, 6 and 10. It is interesting to note that he wrote much of this book in jail. He was often jailed for his organizing techniques. ‘° - 88 view each problem of the community as if it were inde- pendent of all other problems; for example, delinquency and crime. The goals of a People's Organization are to accept the overwhelming fact that all problems are - related and that they are all the progeny of certain fundamental causes; ultimate success in conquering these evils can be achieved only by victory over all evils. For that reason, a people's program is limited only by the horizon of humanity itself. Neighborhoods with static and segmental thinking lack the reCOgnition of the obvious fact that the life of each neighborhood is, to a major extent, shaped by forces which far transcend the local scene. Alinsky sees two major objectives for a People's Organization. One is to organize and do what can be done on the local scene and the second is to utilize the organization as a springboard for the development of other groups throughout the nation. In speaking on native leadership, Alinsky sees neighborhood leaders as those people whom the local people define and look up to as leaders. In order to be effective, they must do things with the people, not for the people. Community organizers often look for People they can identify with, rather than peOple who are seen as native leaders by the neighborhood. With 89 few exceptions, he believes,1jmareal local leaders are completely unknown outside of their neighborhood. Once the natural leader is identified, he must be developed so that he becomes recognized by the neighborhood as a leader in more than one limited way. - Alinsky states that the foundation of a People's Organization is in the communal life of the local people. Therefore, the first stage in the building of a People's Organization is the understanding of the life of a community, not only in terms of the individual experiences, habits, values and objectives, but also from the point of view of the collective habits, experiences, customs, controls and Values of the whole group. This involves the community traditions expressed through local organizations, churches, labor, business, social fra- ternal, recreational activities, and nationalities. Alinsky recommends using ambition and self interest as realities. Use the rugged individualists as leaders and involve as many people as possible. One must have a real respect for peOple's dignity to expect to get their c00peration. One must know the role of the person in this particular neighborhood. Personal identi- fication is very important. The organizer must have complete faith in people. 90 He explains that a People's Organization is a conflict group. Its purpose is to correct ill and fight for rights. He stresses that it is impossible to overem— phasize the enormous importance of people doing things themselves. Successful attainment of objectives is more meaningful to peOple who have achieved the objec- tives through their own efforts. The objective is never an end in itself. Saul Alinsky has taken the position that crime and delinquency will be prevented only to the extent that such basic social conditions as poverty, poor housing, unemployment, disease and racial discrimina— tion are eliminated. The "Back of the Yards Project" in Chicago was a program initiated to bring about such social reorganization. Alinsky advocates the develOp- ment of a series of neighborhood "people's organizations" made up of local residents and representatives of local organizations. These groups are essentially political-action groups which, when joined with other similar groups across the nation, could exert signifi- cant political influence at levels that transcend the community.51 51Saul Alinsky, "Heads I Win, Tails You Lose," ngional Probation Association Yearbook, 1946, pp. 46- 50. ‘ W ' 91 Alinsky believes it takes a highly trained, politically sophisticated, creative organizer to do an effective job. It cannot be done just on-a local basis because the problems today are regional and national so one needs a national power organization. To build that type of an organization one has to have trained organizers.52 In 1968 Saul Alinsky established the Industrial Areas Foundation in Chicago to produce trained organizers. Cesar Chavez and Delores Huerta of the grape growers union are examples of some of his trained leaders. Alinsky established people's organizations in more than a dozen cities. Included in these are: The Woodlawn Organization (T.W.O.) in Chicago; Freedom, Integration, God, Honor, Today (F.I.G.H.T.) in Rochester, New York; B.U.I.L.D. in Buffalo, New York; and organizations in Kansas City, Missouri, and Oakland, California.53 Milton Kotler--Neighborhood §pyernment54_ The organized neighborhood is seen by Milton Kotler as neighborhood government. He defines it as a 52Marion Sanders, op. cit., p. 69. 53ibid., p. 64. 54Milton Kotler, Neighborhood Government (Indianapolis and New York: The Bobbs-Merrill Company, 1969). 'n u‘ 92 political settlement of small territory and familiar association, whose absolute property is its capacity for deliberative democracy. He explains that many neighborhoods were originally independent and lost their self-rule to the larger city. For example, Germantown is a neighborhood of Philadelphia. It was settled by Rhinelanders in 1683 on 6,000 acres granted by William Penn to Francis Daniel Pastorius. By 1690 it was a township of sixty houses and three hundred peOple. Until the last decade of the eighteenth century, German was the official and vernacular language. Thus, Germantown originated as a chartered town of Quaker immigrants, founded concurrently with Philadelphia to its south. Germantown continued as a political unit until it was annexed by Philadelphia without the consent of its residents in the consolidation of 1854. After 171 years of independent growth, that neighborhood lost its political self-rule. If one turns to Kensington or other neighborhoods of Philadelphia, he can trace their settlement and political independence to a time before Philadelphia was settled. The neighborhood of Kensington originated as the town of Schackamaxon where the first Quaker meeting in America was held in 1682 and from which Penn oversaw the planning of Philadelphia. 93 To the south of the original limits of Phila- delphia lies the present thirty-ninth ward of the city, formerly the town of Moyamensing, and previously known as Wicaco, settled by Swedish farmers before Philadelphia existed. 5n11854, twenty—eight cities, towns and boroughs lost their local government and were incorporated into the city of Philadelphia.55 The present day neighbor- hoods of Philadelphia can be traced to these original political units. Kotler maintains that if many neighborhoods originated as autonomous political units, it is consis- tent that after annexation the territorial identity of neighborhoods survived even if they were under firm ward control and police occupation by downtown. He sees the source of political conflict in a city as the competition for power among downtown interests or between downtown and the neighborhoods. Downtown has long been the only seat of political power in the city, while the neighbor- hoods, once political units, have not been able to exercise power since their annexation.56 Kotler views the neighborhood in origin and con- tinuity, as a political unit not just a social unit. 55E. Digby Baltzell, Philadelphia Gentleman (New York: Free Press, 1958), p. 173. 56 u" Kotler, op. cit., p. 7. 94 The current development of neighborhood corporations to gain and exercise local control is then quite consistent with the historical character of neighborhoods as political units. The denial of representation to neighborhoods in many cities with at-large council elec- tion procedures is partly responsible for the reassertion of neighborhood independence. He cites the 1968 Ocean Hill-Brownsville school in New York as a case in point. The local neighborhood board barred the school doors demanding a form of community control over the school. Kotler states that the power of neighborhood action against central administration should not be underesti— mated, and he also points out the essential vulnerability of a giant city's administration to local political demand.57 Kotler claims our knowledge has been misguided in the direction of globalism. The result has been a loss of local liberty and sense of community. Kotler disagrees with Saul Alinsky's approach. The difficulty with Alinsky's theory, Kotler explains, is that it relies for effect on the capacity of neighbor- hoods for militant disruptive power. To base self-rule on such power is to ignore the effective cause of present local domination, which is the police and military power 57Ibid., Introduction, x. 95 of downtown. Barring a general uprising of an entire metropolitan population, no single neighborhood or area can defeat the central power of downtown, enforced by police. It is not Alinsky's expressed object to cause general revolution. His principal error is to suppose a neighborhood can succeed militarily where it has failed politically.58 Kotler states that: . . . to date, the principal result of The WOodlawn Organization in Chicago is the rise of a military cadre--the Blackstone Rangers. Yet the organization, after having gained many tactical victories, still has no legitimate political jurisdiction, while the city government is continu- ally arresting and jailing members of the Rangers. This demonstrates Alinsky's failure to recognize that although neighborhoods are natural political units-—and thus are able to gain political . authority by political means—-cities are domina- ted by downtown power enforced by police control and they have military force superior to any of their constituent areas. Kotler also looks at the community organizational theory of the Students for a Democratic Society (S.D.S.). They had a number of local projects in Chicago, Cleveland, Newark and Oakland. Their theory rests mainly on the view that national revolution is required in American society if the poor are to gain political and economic equality. They claim that existing social structures cannot be pressured by groups using the tactics of Alinsky, for they are too locally oriented to bring about u‘ 59 581bid., p. 28. Ibid., p. 30. 96 the changes necessary for social equality. The principal difficulty of this approach with respect to self-rule, Kotler explains, baits stress on national power, which leads to a theoretical understanding of power instead of a practical knowledge of its application. Another approach to community organization dis- cussed by Kotler is Black Nationalism, the idea espoused by Malcolm X early in his career as a Black Muslim and now a doctrine theoretically developed by Robert S. Browne, an economist on the faculty of Fairleigh Dickinson University. It is a separatist doctrine that rejects any interest in the reorganization of national power and seeks only to achieve an autonomous black territory in the United States. The theory fails according to Kotler because it is based on the false assumption that whites have gained self—rule because of white nationalism where, in fact, whites do not have self-rule any more than blacks do. Kotler also mentions liberal government officials who are accommodating the movement for community power by placing "little city halls" throughout the city. Mayor John V. Lindsay of New York is the most forceful advocate of such programs. Kotler claims that under the present oligarchic rule of our cities, these little 97 city halls will only turn into improved police bastions in the neighborhoods.60 Kotler mentions another theory of community organization gaining wide interest, principally through its demonstration model in the Bedford-Stuyvesant Commu- nity Corporation in New York City. It was initiated by the late Senator Robert Kennedy and is based on economic power. Established wealth invests capital in poor commu— nities as a basis for local employment and income. Kotler, however, feels that poor communities will still remain tied to downtown.61 Kotler states that the object of local self-rule can be more nearly achieved in the neighborhood terri- tory than in large urban areas or single institutions within a neighborhood. One cannot organize a territory containing one-half million people like Harlem for civil government without first organizing the neighborhoods within it. The most practical unit for the struggle for local self-rule is the neighborhood community. The neighborhoods are already informally associ- ated for social purposes and quite ready to be formally constituted for political purposes. The best form of neighborhood organization is the corporate organization of a neighborhood territory, 601bid., p. 35. a 6111016.. p. 37. 98 chartered by the state and legally constituted for govern- ing public authorities in the neighborhood. It is called a neighborhood corporation. An example of this type of corporation is the East Central Citizen's Organization (E.C.C.O.) in Columbus, Ohio. It was started in 1965 and covers approximately one square mile with 6,500 residents. One of its major programs is the Youth Civic Center offering many youth activities in delinquency prevention, education, recreation, job training and job placement. New neighborhood corporations in St. Louis, Philadelphia, New York, Louisville, New Orleans, and elsewhere have been modeled on the principles of E.C.C.O.62 Kotler believes that the overall advantage of a decrease in central power is that greater peace and har- mony in the city will come about. Participation is so poor in present—day centralized programs simply because they are develOped on the basis of an abstractly deduced need precluding community involvement in its deduction. The most sensible way to locate the neighborhood is to ask the actual residents where it is, for people Spend much time defining boundaries according to Kotler. Four factors favor corporate development in poor neighborhoods: 621bid., pp. 39e52. 99 1. Because of unemployment, many residents of poor neighborhoods spend more time within their areas than do residents of wealthier neighborhoods. 2. The employment pattern in poor neighborhoods corresponds to that of seasonal or unskilled workers and this has the same effect as unemployment in reinforcing neighborhood rather than job location as the strongest unit of familiar public relationship. 3. In addition to spending more time in the neighborhoods, poor residents spend more time outdoors; they usually have numerous children and live in congested housing conditions. This means more intensive public gatherings on sidewalks, at churches, and in stores in the neighborhood. 4. With intense public life comes a greater develOpment of c00peration in order to make street life tolerable. The relationship between neighborhood government and the police needs much improvement, according to Kotler. He sees the police as having their own political interests, which may profit by their violence upon the community.63 By violence, Kotler appears to mean police corruption, brutality, racism and apparent lack of community awareness. 631bid., p. 77.‘: m 100 TENANT ASSOCIATIONS Organized neighborhood groups in the form of tenament associations have been very effective in organizing citizens to combat crime and work for better environmental conditions. The key to their success is organization, long-range planning, and massive tenant participation, not merely legal defense.64 As an organized group the tenants association deals not only with maintenance and rent problems, but also with the type of policing desired, the processing of complaints through the courts, programs relating to juvenile delinquency prevention, job Opportunities and other crime prevention programs.65 ALAN ALTSHULER--COMMUNITY CONTROL66 Alan Altshuler has written on the subject of community control and states that when black spokesmen demand greater participation in the political and econ- omic lives of their cities, their specific agenda of 64Stephen Burghardt.(ed.), Tenants.and the Urban Hpusing Crisis (Dexter, Michigan: The New Press, 1972), p0 61. 651bid., pp. 184—90. 66Alan A. Altshuler, Community Control: The Black ngand for Participation in Large American Cities (New York: Western Publishing Co., Inc., 1970). 101 reform typically includes the following: (1) devolution of as much authority as possible to neighborhood commu- nities; (2) direct representation of such communities on the city council, the board of education, the police commission, and other significant policy bodies; (3) black representation at all levels of the public service in far more than token numbers; (4) similar representation on the labor forces of government contractors; and (5) the vigorous application of public resources to facilitate the development of black-controlled businesses.67 Altshuler quotes a national Harris survey con- ducted in 1969 stating that 76 percent of Negroes . interviewed considered that they were discriminated against in getting police service. In reviewing pro- posals for community control Altshuler discusses the position of James Q. Wilson. The suburban analogy, he contends, is over- simple. Just because the central city is central, it cannot be fully suburbanized. People from all over the metrOpolitan area use it each day. They expect the highest level of order to be maintained in it just as they know that it contains the most highly priced land. Law enforcement cannot be responsive solely to resident norms in the central city; it must also serve businessmen, shoppers, theatergoers, students, public officials, and so on. It is also of critical importance, Wilson argues, that the central cities contain the deepest social cleavages in our urban areas. The potential for violent conflict between black ghettos and the working class white neighborhoods that lie in their 67Ibid., p. 14. 102 paths of expansion should not be underrated. Somehow, Wilson writes, the proponents of neigh- borhood control seem to assume that only Negroes would gain control of the police. But in prac- tice whites would do so as well, and their use of this power to drive and keep Negroes out would be highly probable. Wilson concludes: 'When a community is deeply divided and emotionally aroused, the proper government policy is not to arm the disputants and let them settle matters among themselves; it is, rather, to raise the level at which decisions will be made to a point suffi- ciently high so that neither side can prevail by force majeure [italics in the original] but low enough so that responsible authorities must still listen to both sides.’ Community control advocates respond to these charges by arguing: First, although some cities are cauldrons of diversity, community control would be more conducive to peace than the existing system. It is nec- essary to establish a form of government in the ghettos that is widely perceived as legitimate. Secondly, community control might tend to reduce friction between neighborhoods. The present situation forces diverse groups to compete for resources within a single system. Thirdly, there is a real danger that white neighborhoods would strive to keep blacks out. They have done it for years in the suburbs. White racism is a problem that has to be dealt with by each city and state. To prevent black racism, legislation dealing with community control will have to contain provisions for intervention by higher authorities under specified 103 circumstances. Abuse of police power to exclude blacks, for example, will fall under the scope of these provi- sions. Fourthly, there will be some friction experienced. Justice will prevail in the end, with a limited amount of conflict, if government leaders and public opinion work together to facilitate the transition rather than work to prevent it. Fifthly, Altshuler believes Wilson's error is to equate the Central Business District (C.B.D.) with the central city. Most of the central city acreage is residential and in setting up a new system of government it may be possible to establish a more rational system for distributing taxes. Altshuler in a conversation with Patrick Murphy quotes the former New York Commissioner as saying, "Much more participation by citizens in crime control is needed. Representative citizen advisory committees at department and precinct levels are needed."69 Altshuler claims that effective law enforcement is impossible without community support. He questions James Q. Wilson's statement that police abuses will . . . . 0 decrease With increased profeSSionalism.7 68Ibid., pp. 29-32. 69Ibid., p. 39. 70James Q. Wilson, Varieties of Police Behavior (Cambridge, Massachusetts: Harvard University Press, 1968). pp. 286-93. 104 Altshuler states that corruption in a Negro neighborhood controlled by a form of local government would be at a minimum because the responsible citizens would be fully aware of the precariousness of their autonomy.71_ . He admits that neighborhood control may not bring a major decrease in crime rates but the overall picture would be brighter because it would help cement the American union by providing an adequate outlet for racial pluralism, a better understanding of our political insti- tutions and an increase in competence throughout the black community.72 NATIONAL NEIGHBORS” In May of 1970 a group called National Neighbors was founded. Its impetus was the need to challenge the agencies that control housing patterns and to encourage them affirmatively and publicly to support open housing. It is an organization of multiracial neighbor- hoods and its membership extends over the entire United 71Altshuler, op. cit., p. 44. 72Ibid., p. 210. 73Information on National Neighbors comes from personal correspondence with this organization, its members and its bi-monthly publication entitled National Ngighbors. \ s" 105 States. To dramatize the growing strength of the organized neighborhood concept, a list of the present National Neighbors membership is included in Appendix E. National Neighbors members have been involved in many crime prevention projects. A number of these programs are enumerated at this time to convey the value of a neighborhood association in the area of crime prevention. On April 2, 1972 the Lansing State Journal in Lansing, Michigan, ran an article stating that in the last seven months tenant groups and block associations from the brownstone-lined streets of Greenwich Village to the high-rise apartment houses of Manhattan's upper East Side, have armed themselves with police whistles. If there is any trouble a resident dials 911, the police emergency number, and then goes to his window and blows his whistle. Complainants then lock their doors and go outside to the street blowing their whistle all the while. Police Commissioner Patrick V. Murphy endorsed the whistle concept saying, "Block associations and tenant groups will have a close relation- ship with the Police Department." The idea has spread to the Bronx, Brooklyn and Queens. In the Hyde Park-Kenwood community in Chicago this concept is also being used and is called Project 106 Whistle Stop. It was developed by the local neighborhood association. In Denver, a resident of Greater Park Hill was falsely accused of rape and jailed. The neighborhood association, rather than the daily newspapers, publicized the incident and rallied emergency assistance for the accused's family until he was found innocent of all charges and released. And, because he had lost his job when he was accused, a Greater Park Hill Association board member helped him find another one. In February of 1973, The Philadelphia Inquirer carried a lengthy article focusing on several recent rapes in the city's Mt. Airy section. Photographs accompanied the piece, showing black men about to assault white women in their homes. The article was inflammatory and its facts obviously had not been checked with resi— dents in the area. The community association president lost no time responding to the article, but the delib- erately slanted presentation had already begun to corrode the neighborhood with anger, fear, and distrust. Concerned residents in West Mt. Airy in Phila- delphia got together to talk about how rising crime in the area was eroding the sense of community once preva- lent everywhere. The neighborhood association organized a "Walk and Talk" period. A specified time in the evening was set aside for all the neighbors to come out, 107 circulate in their block and chat with persons on the street and on their porches. Numerous block and neigh— borhood events resulted and a spirit of neighborliness was revived. A number of neighborhood associations are par—_ ticipating in Operation Identification. An identifying number is engraved on possessions burglars find most appealing--electric tools, appliances, TV sets, radios, stereos, tape recorders, cameras, typewriters and musical instruments. Stickers are placed on doors or other obvious places to warn thieves that Operation Identification is in effect in this home. Neighborhood association members walk door to door encouraging each resident to use the marking equipment usually made available through the local police department. Examples of associations using this technique are: West Side Neighborhood Association, Lansing, Michigan; Greater Park Hill Community, Inc., Denver, Colorado; Crenshaw Neighbors, Inc., Los Angeles; and Hyde Park—Kenwood Community Conference, Chicago. Neighborhood associations have received grants from various organizations to improve their neighborhoods, combat crime and create programs beneficial to the residents. Examples of this are the grants given by The Interreligious Foundation for Community Organization (I.F.C.O.). Among the community organizations funded in 108 fiscal 1970 were Capitol East Community Organization in Washington, D.C. which received $26,950 for its program on issues of land redeve10pment, hospital policies and crime control in a declining neighborhood of some 115,000 people; $20,000 for educational, cultural and citizenship programs to the Committee for a Unified Newark; $11,250 for an economic development program for the Garfield Organization, $40,000 for the Woodlawn Organization, $1,100 fOr a Better Austin Association, all in Chicago. In Detroit, Michigan, block clubs and neighbor— hood associations are becoming a political power to be reckoned with according to city Councilmen. There are between 2,000 and 6,000 block clubs and neighborhood associations. Wayman Dunn, President of the Community Improvement Association of Block Clubs states that the functions of the clubs are »‘ . - . to .create a bridge of understanding between black and white neighbors, communicate and create programs for young people, urge people to keep their property up and maintain a good standard of living. These all contribute to a decline in crime and an effec- tive united political voice. The Sherman Park Community Association in Milwaukee, Wisconsin, provides a weekly "Shopping Care- Age” for elderly and disabled peOple to assist them in shopping for groceries, medical supplies or other 109 necessary items. They also have a neighborhood welcome committee which visits new families. These programs not only protect the senior citizens from purse snatching and the like but they create an atmosphere in the neighbor- hood that prevents many problems from ever arising. In Menlo Park and East Palo Alto, California, the neighborhood associations hire youths to paint and clean up the neighborhood. Local businessmen provide the money and supervision. Neighborhood associations also have a program called "Helping Hand," where certain neighborhood resi- dents are on the lookout for problems, especially dealing with young people walking home from school. The Crenshaw Neighbors, Inc., of Los Angeles, carried out a program with the Los Angeles Police in 1968 called “War on Crime." Citizens watched each others' homes, marked their valuables and reported any suspicious circumstances. During the period of the program activities, home robberies dropped 42 percent in the Crenshaw area. The West Side Neighborhood Association in Lansing, Michigan, has a Public Safety Committee which has met with the police chief and members of his crime prevention bureau. They have helped lower the crime rate in their neighborhood through Operation Identifi- cation, developing neighborly concern, communication 110 with the police and an all-out effort to maintain a heathy neighborhood. On March 22, 1973 the Los Angeles Times reported that in Palms—Mar Vista, California, the police have introduced a project called Team 28 which involves a coordinated effort between police and the community they serve. There are nearly five hundred block captains who advise residents on the latest crime prevention information, including description of suspects wanted in connection with local crimes. The police teams meet in the residents' homes using kaffeeklatsches as a means of communication. The officers working a certain neighbor- hood have develOped a feeling of identification and responsibility for the area they serve. In one year Palms~Mar Vista has reduced burglaries by fifty-three percent and traffic accidents were down sixty percent. This same program may be implemented in Arleta- OMission Hills in the San Fernando Valley and in Watts. The Wealth-Ethel-Franklyn-Fuller (W.E.F.F.) Neighborhood Association in Grand Rapids, Michigan, began imp early 1970 as a result of an overall neigh- borhood reaction to crime and particularly burglary. A Neighborhood Steward Program was formed when local police efforts proved unsatisfactory to the neighborhood. The Steward Program involves a selected group of citizens walking the streets with walkie-talkies at high crime 111 incidence times during the day and night. This is not a vigilante type of organization nor do the stewards act as law enforcers. ‘Their role is that of advisor, observer, witness and helper. Their formalized goals are to help build a cohesive neighborhood spirit by. acting as advisors, listeners, and friends who can help with neighborhood problems. Residents of the neighbor- hood who need help of any kind are located, and the steward guides that person toward a solution through the city administration or through the neighborhood associé ation. The stewards instill confidence in neighborhood investments and reduce crime. They are dedicated to helping the neighborhood safeguard itself, as a whole, and as a body of individuals, from any objects or other persons who would jeOpardize the safety, health, or welfare of members of the neighborhood family. The Social Research Center of Calvin College, Grand Rapids, Michigan, evaluated the Steward Program. They found that 53 percent of the residents feel the major advantage of the Steward Program is that it gives them a sense of security. They felt their neighborhood is now more protected from crime and is safe to walk in at night, as well as the daytime. The stewards are trained by the police depart- ment. This is one factor which has fostered a good working relationship between the police and the neighborhood. 112 The 19th Ward Community Association in Rochester, New York, has a Youth Project providing a comprehensive social services program for children and youth. Its eight goals are: 1. The prevention and early treatment of mental and physical health problems in children and youth with emphasis on improving and increasing service to children and youth in their normal life settings. This is accom— plished through five full-time street workers, two store- front youth centers, a media workshOp, special children's programs (social development, babysitting, tot-lot), an odd job work program for youth, four part-time paid peer workers, and a community referral system. All these models help the Youth Project to be involved in the lives of youth and their families before crises occur. Early secondary prevention programs include: individual counseling, group counseling, referral to the Convalescent Hospital or Strong Community Mental Health Center or emergency psychiatric service. 2. Increase para—professional social service resources in the community--they recruit train, and place some forty community volunteers each year; 3. To create partnerships between mental and physical health staff and a community organization in order to provide comprehensive care to children and youth; 113 4. To provide successful group experiences and increase community resources for elementary school age children; 5. To maximize the use of existing social service resources and to seek broad-base support for the develop- ment of new services; 6. To help propose new ways to extend social services to the large number of children who need such services; 7. To provide for community participation in meeting youth needs; 8. To administer an efficient and effective program which places a high priority on evaluation. National Neighbors demonstrates the active movement in this country by grass-roots organizations to c00perate with existing agencies, to demand more accountability from them and to take more responsibility themselves for their neighborhoods. The potential for this level of involvement is unlimited. Its role in crime prevention is not only necessary but vital. SUMMARY There is considerable debate whether the large cities can be organized on a neighborhood basis to prevent crime. However, there are many neighborhood programs demonstrating that the organized neighborhood 114 can play a definite role in crime prevention. Many peOple around the United States are expressing a personal interest in taking positive action to maintain law and order. They are coming to the realization that the formal members of the criminal justice system are limited in their effectiveness and that they both need and want the citizen to take a responsible place in combating crime. Citizen involvement in the past few years has evolved from lethargy, to fear, to a present day concern for action against escalation of crime in the streets. The citizen appears ready now to take the constructive action necessary to help remedy this situation. The ideas of community organizers of the past and present have to be evaluated and many of their approaches can be adapted and implemented. Saul Alinsky, Milton Kotler, and Alan Altshuler and others have encouraged a grass-roots neighborhood approach to problem solving. Some of their ideas might appear too radical for the average person in the community or may seen unrealistic. However, the approach of a neighborhood improvement association has an appeal to many citizens. Organizations like National Neighbors demonstrate the nationwide interest.in local neighborhood involvement for cooperating with, assisting and complementing the formal members of the criminal justice system in their efforts to prevent crime. a T PART II. THE CITIZEN'S INTERACTION WITH THE CRIMINAL JUSTICE SYSTEM IN ENGLAND: A COMPARATIVE STUDY In the course of studying community involvement in the criminal justice system, the writer had the opportunity to spend seven weeks in England attending a comparative criminal justice course at Bedford College, the University of London (July lO-August 25, 1972). The interest of the writer while in England centered around the involvement Of the citizen and citizen organizations, formally and informally, in the criminal justice system. There is a special emphasis in this paper on youth pro- grams that prevent delinquency where the particular neighborhood is able tO be in on the decision—making policy. In order to Obtain a first hand report the writer went to a number of agencies that were actual members of the criminal justice system formally, and also went to agencies that have an informal connection with the criminal justice system. These agencies included: Scotland Yard's Community Relations Branch (Race Rela- tions, Community Relations and Youth Bureau), two police divisions (Southwark "M" Division and St. John's WOod "D" Division), a juvenile court (Southwark South), the 115 116 Inner London Education Authority Southwark Youth Com- mittee, the London Borough of Southwark Social Services and the Blackfriars Settlement House. These visits, together with a number of class lectures at Bedford College, the University of London, a series of field trips including the National Center for Crime Prevention, and an exposure to selected litera- ture, combine to make up the majority of this portion Of the study. It must be noted that considerable time was spent in one borough called Southwark which is in inner London,south Of the Thames,juvenile court or to have the inspec- tor in full uniform call on the juvenile and his parents and an impressive repri- mand is given. This method appears to be quite effective in many cases. In visit- ing other agencies, a favorable Opinion was always expressed concerning this program. The juvenile bureau in its present form is only three and one-half years Old. They claim a recidivism rate of only 8.74 with their present program. The records kept by the police are destroyed when the young person is seventeen and a half years Old. 123 b. Community efforts: The individual community participates by electing a person to serve as their community relations officer (C.R.O.). He is hired by the local council to represent his area in its problems with police related matters. People are allowed to demonstrate if their needs are not being met. Many demonstrations were observed on the streets of London and all appeared very orderly with constables abundantly in atten- dance. Citizens also can communicate their needs through their political counselors. The political chain can eventually reach their representative in Parliament and he can lobby for their requests. The community can be said to play an invisible role in influencing police action (Leigh). A citizen can complain about police methods and he can file a complaint. However, the police conduct the investigation (usually done by an outside inspector). They also take what action is considered necessary. They have a self-limiting process. A citi- zen could hire a solicitor and take private action in a case of police brutality. The 124 writer was able to Observe a case such as this at Southwark Magistrates Courts. (Actually a crown court because it was a serious enough matter and the crown court was being remodeled.) Many police constables and ranking Offi— cers are informally volunteering to serve on various community committees. The writer attended the Inner London Education Authority Southwark Youth Committee with Sergeant Kenneth Hitchcock. A general consensus was expressed by many police volunteers that they should be recognized for their community work either by more pay incentives or given credit for time spent in community work. At the meeting 20 peOple were present representing all phases Of community life: a black West Indian youth, a Caucasian teenage girl, a Roman Catholic nun, a minister, businessmen, police and similar professions. An 80 year old member sent his apologies for not coming to the meeting because of a bad back due to a fall. The meeting itself approved local funds for area youth clubs and their programs. It reviewed the applications and recommenda- tions of their investigative committee. 125 SECTION II. THE COURT AND COMMUNITY INVOLVEMENT _ (Main resources: .D. A. Thomas, R. M. W. Harbord, D. Hodges, Esq., visits to court of appeals, crown court (2), magistrates court and juvenile court.) A. Outside London: The community has direct participation in most courts outside of London and some of the other larger cities through a system of lay magis— trates or justices of the peace. These are responsible people from the community who can serve full— or part- time on the bench. Normally three peOple (male and female) sit together and determine the judgment Of their peers. They are appointed by the local government. England is very proud of its lay magistrates and they save the country a considerable amount of money. B. London: The writer was able to experience first hand the court procedures in London prOper. Visits included: the Central Criminal Court Old Bailey, The Royal Courts of Justice, Bow Street Metropolitan Magis- trates Court, Southwark Crown Court and Southwark Juvenile Court. In the London courts, appointed barris- ters serve as the full-time magistrates in adult cases. Community involvement is very limited but the magistrates aPPear to have more of a community consciousness than the jUdges in the United States. It may be a result of the degree of freedom the English magistrates have to express their own Opinion and concern for the peOple and community 126 they represent. The judges do not have political bias to contend with in England. C. Juvenile Court: The writer was able to attend a morning session of juvenile court hearings at Southwark Juvenile Court. The atmosphere in the juvenile court was relaxed and the focus was definitely on the welfare Of the young person in trouble. Juvenile justices of the peace are appointed by the Lord Chancellor's department. There is a three year stay of service outside of London. One man and one woman and one other person are chosen for each juvenile court. They are chosen from their group by their own members to serve as juvenile justices. In London the justices are chosen directly by the Lord Chancellor based on their work or training in juvenile matters. Criminal responsibility is considered at age 10. The Children's Act of 1969 aims at allowing the local community to handle the matter of juvenile delinquency. At the age of 14 the juvenile is classified as a young person. A child has an automatic right of appeal. Homicide is passed up to the crown court to hear when a juvenile is involved. The defense can ask for legal aid. Juvenile courts are closed to the public. The press are allowed in but no names can be published. Juvenile records before age 14 are expunged at the age of 24. 127 Community involvement in juvenile court extends from the lay magistrates down to the local community's concern. It will be interesting to observe the effect the 1969 Children's Act has on community participation because the emphasis is now on the local community to handle the juvenile's needs. Presently very few inter— mediate programs have been developed to meet this approach. D. Probation and aftercare: If the community has the right tO put peOple in prison or on probation then they have the responsibility to assist in rehabili- . tation and reintegration back into the community (D. Hodges, Esq.). Presently in England the community is involved in probation and aftercare through the use of the volunteer. This is done mostly on a one-to—one basis. Very little group work is being tried. It is a new technique and trained group leaders are rare. Volunteers are trained for their rOle by the probation staff. Working class people do not volunteer for proba- tion helpers very often because they feel they have worked hard themselves and they Often get satisfaction out of seeing the criminal punished (Hodges). This leaves the middle class volunteer working with the pro- bationer who is often from the working class. Value systems differ and communication suffers. 128 Immigrants are Often in need of re-education in community responsibilities. They tend to reject a person who is acting out rather than work with him. This leaves the entire responsibility for acting with the police and the courts. SECTION III. COMMUNITY SERVICE AGENCIES (Main sources: Social Services Southwark, Ms. Francis Gordon; Blackfriars Settlement House, Carol Addison and Pat Warahan;tjm2Albany Institute, John Pitts.) A. Social Services: The writer spent an after- noon with Ms. Francis Gordon, the team leader of the department of Social Services Southwark. Social Services tries to meet the needs Of the community by sponsoring family counselor centers, mothers' groups, youth clubs and they are trying to incorporate the intermediate treatment plan (Children's Act 1969) in their educa- tional and socialization programs. They encourage community participation but they are presently under- going interdepartmental changes and they are tied up with the normal bureaucratic red tape. In the area of criminal justice they now have the responsibility of working with children in trouble under the age of 14. They often refer the delinquent child to a guidance center or to a psychiatrist. Their use of group work is limited because of too few staff and too little training in group work. They have 129 community workers and detached workers reaching out into the community. Social Service peOple have a good working relationship with the police, probation and the courts. They make use of community homes (formerly approved schools) to deal with certain delinquency problems. Ms. Gordon explained that petty theft is the greatest neighborhood crime among the younger age bracket. B. Blackfriars Settlement House and the Albany Institute: The writer was able to spend an afternoon with Carol Addison and Pat Warahan at the Blackfriars Settlement House and was also able to Obtain materials and ideas from John Pitts of the Albany Institute. The settlement house concept goes back into English tradition. In many ways it fosters community involvement by providing a central place for local people to meet to discuss their problems. It often, however, tries to solve people's problems rather than organize them to tackle their own problems. Some of the settlements are striving for more local involvement while others are still rather paternalistic and doing many of the things that people should and, with the prOper help, probably would do for themselves. The settlement house encourages tenant associ- ations and homeless families accommodations groups (buildings in a section of the city designated for these homeless families to occupy). They also provide legal 130 advice one day a week. For young people they have a detached worker who goes out to a neighborhood area and slowly gains the confidence and respect of the young people. He then tries to set up some type of place for young peOple to gather and hang out. He helps them work up expeditions and field trips. John Pitts, for example, develOped a discotheque with records two nights a week and a professional disco group came in once a week. Cooking classes, sewing classes, a coffee bar, billiards, pinball machines, and other diversions, were develOped. Parents showed a relative indifference to this program. The settlement peOple notice that the young person in trouble has a better relationship with the police constable than with the probation Officers. The reason they suggest is that the working class young person cannot relate to the middle class probation officer. They know where they stand with the police. The staff at the settlement house provides a reading schema for young peOple who drOp out of school and have trouble reading. The drop-out rate is very high, especially the last two years of secondary school. The schools claim that they have enough problems with the youngsters who stay in school and they cannot do anything about changing the pattern. 131 John Pitts at the Albany Institute is presently involved in the immediate treatment concept and he has a project underway on the truancy problem. C. The Brook Advisory Center: This is a service made available to the neighborhoods by the Family Plan- ning Associates. It gives general information on family planning and help to people from the community on various family related subjects. D. Citizens Advice Bureau: This is an agency Operated by the local government to assist residents in civil matters. E. Legal advice: The Department of Health and Social Security runs Legal Aid Assessment Centers. The court will appoint a solicitor upon request for an indigent. The person is still assessed costs according to his ability to pay. There is a legal aid fund avail— able and also Legal Aid Advice Centers located throughout the city. A Race Relations Board is run by the govern- ment for immigrants and their unique problems. SECTION IV. COMMUNITY INVOLVEMENT AND THE PENAL SYSTEM (Main resources: J. Hall-Williams, personnel from WOrmwood Scrubs prison, D. Hodges, Esq., Col. James S. Haywood.) Prisons are part of society. Therefore, the community has a responsibility to become involved in the 132 policy of such institutions. PeOple are encouraged to take their role seriously through television programs, speakers, and actual visits to penal institutions. Volunteers are used as individuals and in groups to help sponsor a former convict (Haywood). There are new directions in training prisoners now being encouraged by legislation. One of these is the training Of prisoners outside prisons; for example, probation hostels (half-way houses). The projection is that by 1976, seventeen hundred people will be in the program. Day training centers are being set up along with intensive probation. This is creating a great need for voluntary community service on the part of the average citizen (J. Hall-Williams). There are citizen groups now active in working for prisoner's rights. One is the John Howard Associ- ation. This group has been active over many years in working for the prisoner and his needs. This group is also very active in the United States. A new group called Radical Action for Prisoners (R.A.P.) is also agitating for change. Within the prisons themselves, there is an organization of prisoners fighting to secure their rights called the Preservation of the Rights of Prisoners (P.R.O.P.). The penal system in England is centralized. This means that changes can be universally applied. 133 However, flexibility suffers. Today the prisons are overcrowded. The clients, because of the many alterna- tives to imprisonment already tried, are usually the harder core. Despite the increased consciousness of the rights Of prisoners and complaint procedures (Strausberg Council), the prison seems to be the most remote from the community of any of the areas of the criminal justice system. Society has to be constantly reminded and personally involved if prison life is to change for the better so that the client can change for the better alsO. SUMMARY AND CONCLUSIONS Citizen involvement in the criminal justice system in England is limited and isolated. The govern- ment Operates most Of the national services. Local government carries out many of the duties that might fall on the average citizen. There is a kind of national trust or confidence in the Crown despite the normal complaints about efficiency and major policies. There are neighborhood associations that exist for the solu- tion of community problems that are not dealt with by the government. These range from tenant associations and immigrant groups within inner London, to preservation societies in middle class sections of London, to local formal and informal community organizations outside the 134 city of London. The community involvement outside of London appears to vary according to the size and needs of a particular town. Community pressure can be realized much easier in a small city, village or town. There is still a type of tything going on in these areas. This can be good (concern) or bad (gossip). Within London various formal organizations have been set up by the local government to meet the needs Of the city dweller. Where needed, volunteer groups develop to supplement the city's programs; for example, settlement.houses.. There appears to be a general attitude throughout England that the formal government is taking care of its people and there is little need to return to the formal system of tything and hundreds. However, the immigrant population and the younger genera- tion Of Britain may demand more say and participation in the decision-making process (Leigh). The police appear to be anticipating the need for more citizen interaction by the creation of their Community Relations Branch (race relations, community relations and juvenile bureau administration), their community liaison Officers, the corresponding lay repre- sentative community relations officer, their home beat officer and their thorough juvenile policy. Their com- plaint procedure is entirely internal and it may not satisfy certain sections of the pOpulation. 135 The court system within London allows very little interaction with the community except in the case of juveniles and the three lay magistrates or justices of the peace. There is a real means of community involvement outside of London with the lay justices of the peace. Probation communicates with the community through the use of volunteers. Other involvement depends on the individual probation Officer. Community service agencies are becoming a poten- tial vehicle for neighborhood organization but many of them are paternal and they are not cultivating neighbor- hood responsibility. The Children's Act of 1969 is promoting local solutions to delinquency problems but as Of yet not too much has been done to implement this concept. The penal system has several change groups such as the John Howard Association, Radical Action for Prisoners (R.A.P.), and the Preservation of the Rights of Prisoners (P.R.O.P.) working within and without the walls agitating for change but society appears to be unwilling to wake up the sleeping giant. In general, a comparative statement on the citizen involvement in the criminal justice system between the United States and England could be summed up as follows: England is better equipped in their police functioning than the United States eSpecially in 136 the area of the juvenile. The English constable has a better understanding Of his role of service and the general public gives him COOperation. England's court system better represents the people especially with three lay justices. England's courts are not politically motivated and neither are their solicitors. This creates less friction and better functioning. The United States appear to have more participa- tion in the area of probation and aftercare. This is eSpecially true in the use of half-way houses and group work. Community service agencies have similar problems in both countries. Neither works very hard at organizing citizen groups. It is often easier to do it yourself. They are not oriented towards cultivating personal responsibility but rather they are inclined to dish out services. The legal aid assistance is less overburdened in England than in the United States. A citizen in England has a better chance of obtaining a good solicitor than a United States citizen has of getting a good public defender. The prosecutor in the States is Often politi- cally motivated. The penal systems in both countries have similar problems only on a different scale. Both are receiving 137 limited funds and limited solutions. Society is unwilling to get too involved in penal reform. In reading this paper, one must keep in mind that its purpose was to study citizen involvement in the criminal justice system. The conclusion drawn is that there is relatively little involvement in either country. Perhaps the theory is one that should be expanded and incorporated in both countries. REFERENCES The following individuals were interviewed and many of their comments have been incorporated into this paper. 1. Sgt. Kenneth Hitchcock, Southwark Police Station, "M" Division, Juvenile Bureau, Metropolitan Police. 2. Ms. Francis Gordon, Team Leader, London Borough of Southwark Social Services. 3. Inspector Michael Spooner, Inspector Allan Coxon, A7, Juvenile Bureau, Scotland Yard. 4. Chief Superintendent J. Colli, L.L.B., A7, Juvenile Bureau, Scotland Yard. 5. Chief Inspector Turner, "M" Division and Community Liaison Officer. 6. Carol Addison and Pat Warahan, Blackfriars Settle- ment House. 7. Inspector Richard Wells and Inspector John Aldridge, Hendon Training Center, Metropolitan Police. 8. John Pitts, Program Director, the Albany Institute (material but no interview). 10. 11. 138 Inspector and Constable in Panda Car "D" Division, St. John's WOod. Juvenile Court Personnel, Southwark South (clerk, three lay justices of the peace). Inner London Education Authority, Southwark Youth Committee (20 members). Meeting attended by writer. The following persons delivered lectures.for the course on Comparative Criminal Justice at Bedford College, University of London, July lO-August 25, 1972. Many of their ideas are referred to in this paper. 1. 2. 10. 11. Dr. Leonard H. Leigh, London School of Economics and Political Science. Mr. D. A. Thomas, London School of Economics and Political Science. P. J. Stead, Esq., O.B.E., M.A., F.R.S.L., Director of General Studies, Police College, Bramshill. Chief Superintendent P. Jackson, M.A., Metropolitan Police. M. H. Baugh, Esq., Director Overseas Studies, Police College, Bramshill. Commander A. Lowndes, B.E.M., and staff, Metro- politan Police Training School. J. T. Ellis, Esq., Assistant to H. M. Chief Inspector of Constabulary... Chief Superintendent D. A. Ward, "A" Department, MetrOpolitan Police. Chief Superintendent Steve O'Brien, "D" Department, MetrOpolitan Police (training). Chief Superintendent T. B. Walker, Director Home Office, National Crime Prevention Center, Stafford, England. Chief Constable Arthur M. Rees, Esq., O.B.E., O.P.M., M.A., DOLO 12. 13. 14. 15. 16. 17. 18. 19. 20. Note: 139 Professor J. Hall-Williams, L.L.M., London School of Economics and Political Science. J. S. Anderson, London School of Economics and Political Science. Col. J. S. Haywood, Assistant Director (Staff Training), Home Office Prisons Department. D. Hodges, Esq., The Principal Probation Officer, N.E. London area. R. M. W. Harbord, Esq., Chief Clerk, Inner London Juvenile Courts Division. S. E. Bailey, Esq., Director, Police Research Services Branch, Home Office. Norman Chapple, Police Officer. J. C. Alderson, Esq., Commandant, Police College, Bramshill, Hartley Wintney Hampshire. Visits included: Central Criminal Court, Old Bailey, Royal Courts Of Justice, Hendon Police Training School, Home Office National Crime Preven— tion Center, Stafford, Stafford Constabulary and Stoke—on-Trent Constabulary, New Scotland Yard, H. M. Prison WOrmwood Scrubs and the Police College, Branshill. Bibliographic listing of written materials regarding England are listed in a separate section in the bibliography. Chapter 4 THE CASE HISTORY, METHODOLOGY, AND SAMPLING Chapter 4 is divided into three parts. The first division discusses the preliminary background to the study, the initial procedures, a brief history Of the organized neighborhood concept in Muskegon, Michigan, called the Neighborhood Improvement Association (N.I.A.), its crime prevention aspects and its present relationship to the criminal justice system. The second section, entitled Methodology, describes the Normative Sponsorship Theory and how it was applied in 60 interviews with various members of the criminal justice system to obtain areas of agreement, disagreement, and viable alternatives to an organized neighborhood's role in crime prevention and the criminal justice system. The third part of this chapter is concerned with the selection procedures used to obtain an adequate sample for meaningful interviews, the various charac- teristics of those interviewed, and the mechanics and nature Of the interview. 140 141 PART I. THE CASE HISTORY Preliminary Background The concept of an organized neighborhood and its potential role in crime prevention in the criminal justice system prompted members of the Michigan State University faculty and staff in the School of Criminal Justice to investigate a program of this nature in Muskegon, Michigan. In the fall of 1970, another researcher and the writer traveled to Muskegon to talk with personnel from the Muskegon Area Development Council to determine whether it would be beneficial to research in depth the organized neighborhood concepted, called neighborhood improvement associations, which have been developed by the Council's Human Developments Division. The decision was made to study the value of a neighborhood association in the area of crime prevention. An initial prOposal was drawn up and submitted for approval by the School Of Criminal Justice, to the director of the Human DevelOpment Division and the neighborhood association committee members. In February of 1971 the writer attended the annual Neighborhood Association Committee Chairmen Meeting, observed the meeting and met various members of the neighborhood associations. At that meeting the objectives and goals for the six Muskegon N.I.A.'s were 142 discussed. The writer in his own mind reaffirmed his interest in this approach to community problem solving. The final proposal for this study was then pre- sented to the police chief of Muskegon and the officials at City Hall. They approved of the study and supported the attempt to receive state funds. A long delay followed and finally after numerous inquiries it was learned in June of 1971 that the prOposal would not be funded. No letter confirming this rejection arrived until November, 1971. This lengthy delay hindered the early beginning of a thorough study. It was finally decided in June Of 1972 that the research should be started and followed to its conclusion without funding. Initial Procedures The writer began attending the regular associ- ation meetings of the Nelson Neighborhood Improvement Association. His role was one of a known participant observer.1 He was introduced at the initial meeting as a researcher from Michigan State University, the School of Criminal Justice, who would sit in on a number of the association meetings, attend association functions and observe neighborhood programs. The writer explained lJohn Lofland, Analyzing Social Settings (Belmont, California: wadsworth Publishing Company, Inc.,), pp. 93-116. :2 143 that his role would be strictly one of an Observer and that he would be taking notes but would not contribute to the meetings. This technique was adhered to during any meeting or function. The Observer did, however, ask numerous questions on an informal basis Of the various members of the neighborhood association after the formal meetings. The foundations for the study were begun in June 1972 and lasted until January 1973. This involved the direct observation of association meetings and any related neighborhood events. The interview phase of the study was begun in the middle Of January when a series Of interviews were arranged with various people in the criminal justice field to determine their ideas on the concept of neighborhood associations and their role in crime prevention and the criminal justice sys- tem. Approximately 60 interviews were conducted from January 29 to March 22, 1973. Npighborhood Association History in Muskegon, Michigan Muskegon, with a population of 46,000, is the largest city on the east bank of Lake Michigan. It is an important lake port and a manufacturing and resort center. Its numerous industries produce automotive parts, foundry products; paper, oil, chemicals and 144 recreation equipment. It has an eight to ten percent Black and Mexican-American pOpulation. In the summer approximately 1,500 migrant workers live and work in the area. In the 1880's Muskegon was known as the "Lumber Queen” of the world. At that time 47 saw mills out nearly eight billion board feet of lumber. By 1890 the timber supply was depleted but industry had been brought into the area and the city continued to develop. -In 1927 Oil was discovered and 400 wells were drilled in the Muskegon field. The Opening of the St. Lawrence Seaway encouraged further growth of Muskegon as a port.2 Shortly after WOrld War II began, approximately 25,000 Black men and women came to the Muskegon area, having been recruited for foundry jobs from the southern parts Of the United States. At the present time, with the closing of key foundries, Muskegon has a very high unemployment rate.3 2This is Muskegon Counpy, published by the Muske— gon Area League of WOmen Voters (Muskegon, Michigan: September, 1972), pp. 4-5. 3The Michigan Employment Security Commission and U.S. Department Of Labor reports that 10.7 percent of Muskegon county were unemployed in 1971, 10.3 percent in 1972 and 9.0 percent by April of 1973. The Muskegon Sta- Egptical Abstract, 8th edition, Division of Research, Graduate School of Business Administration (Michigan State University, 1970), reports that 334 people in Muskegon county receive old age assistance, 425 aid to dependent children, 8 aid to the blind, 151 aid to the 145 This has placed many minority individuals with limited education on the welfare roles. In 1964 a number of businessmen who were members Of the chamber of commerce decided that their organiza— tion should do more than cultivate business and the tOurist trade. They shifted their emphasis to local problems and renamed their organization the Muskegon Area Development Council. They established a Human Development Division for the purpose of relating to the industrial community the basic and real needs of the Black population in order to use apprOpriately the community resources. The prevalent viewPoint was that protest marches and rhetoric had pointed out the problems, but now there was a real need for constructive, grass—roots activity.4 disabled, and 171 general assistance. There were 391 juveniles in the delinquency caseloads and 309 on the child neglect caseload. Of the total population, 12.6 percent made $3,000 or less, 8.3 percent $3,000 to $5,000, 24 percent $5,000 to $8,000, 20.7 percent $8,000 to $10,000, 22.3 percent $10,000 to $15,000, 9.6 percent $15,000 to $25,000, and 2.5 percent made over $25,000. The population of Muskegon county (Muskegon-Muskegon Heights) is 157,200 (12-31-71) as reported by Sales Man- ggement, The Marketinngagazine, Survey of BuyingPowep, Monday, July 10, 1972. (Local residents feel these 1970 statistics are too low and do not reflect the recent economic recession.) I 4In a book called Anatomy of a Communipy, Charac- teristics of the People of Muskegon County Area (Muskegon, Michigan: Civic Affairs Research, Inc., 1968), the Opinion was stated that non-white persons will represent an increasing proportion of the entire population of the Muskegon-Muskegon Heights area. The non-white population 0f the Standard Metropolitan Statistical Area differs 146 Initially the Human Development Division began its Operation by selecting 38 Black committee members with a broad range of backgrounds, including ADC mothers and teachers. They were selected on the basis of their involvement in programs that were directed toward improv- ing some phase of human life. Their range of influence was from the family to the school and neighborhood. These were peOple who did not have leadership positions. (In discussing their priorities it became evident to the Human DevelOpment Division that if the programs were to be effective the people involved would have to be instruments of their own self determination.) Their priorities were contrary to the N.A.A.C.P. and the National Urban League. They were interested in local neighborhood problems. On this premise these 38 members went out into the Black community and contacted peOple in their own neighborhoods whom they felt could generate some kind of response to alleviate the local problems. The first meeting usually brought out eight or nine people from a given neighborhood. At this meeting the needs of this particular neighborhood were discussed by the people themselves. The representatives from the significantly from the entire population in many impor- tant charcteristics. These considerations suggest that continued Special attention to the needs and aspirations Of non-white persons in the Muskegon Standard Metropoli- tan Statistical. Area :is-warranted.* - 147 Human Development Division attended and served as technical assistants. An instrument of interest was necessary to unify the peOple Of a given neighborhood. The most important problems were determined by the group. After discussing these specific problems the group tried to determine what type Of organization was needed to affect programs to alleviate the situation. From this meeting evolved an acting officers group. Residents were assisted in establishing a constitution-bylaw com- mittee. It was known as a community organization of citizens, unsophisticated and uncluttered by bureaucracy. The group slowly develOped according to its own efforts. Some never got Off the ground while others developed a nonprofit corporation with definite goals and numerous programs. The director of the Human DevelOpment Division is Alfred Williams, Jr. He had been involved in community development projects in Chicago at the same time Saul Alinsky was beginning to organize People's. Organizations. Mr. Williams served as the Muskegon Area DevelOpment Council's resource person in the establishment of the organized neighborhood groups.5 5Mr. Williams was a member of the Prevention Division of Juvenile Delinquency and president of the student chapter of N.A.A.C.P. in Chicago. He is con- Sidered in this study to be a resource person in the area of community development. He is, what Dr. Sower 148 The emphasis in the neighborhood program was that communities had given up their democracy for bureaucracy and that they had to constructively reverse the flow from the city proper to one where the neighborhoods had a say in the type of service they needed. This approach tended to create antagonism between the public and private agencies, the already existing community organizations and the neighborhood groups. This conflict was seen as a challenge and not a negative drawback. However, professional jealousies and duplica- tion are always an on-going problem in community development programs. A number of neighborhood improvement associations were organized throughout the Muskegon area. Each was centered around an elementary school district: Lindberg, East Park, West Heights, Reeths Puffer, Froebel, Blue Lake—Dalton, Angell, Marquette and Nelson. (See Appendix B for a map of Muskegon.) Each association had a unique makeup, its own constitution-bylaws, and a different set of problems. For example, Blue Lake—Dalton Township Neighborhood Asso- ciation, Inc., is a low income housing develOpment ____. calls, a natural sociologist because he lives, works and participates in community development every day. He has been in Muskegon for 20 years. 149 outside of the city of Muskegon. This development, which was Opened March 15, 1971, includes 72 homes and is a one and one-half million dollar project. Marquette Neighborhood Association is made up of a majority of Caucasian executives and teachers with homes valued from $12,000 to $50,000. The Froebel Neighborhood Association is primarily Black and located in almost a ghetto—type atmosphere. Nelson Neighborhood Association is an interracial organization trying to promote integration not ghettoization. Each neighborhood improvement association has its own set of problems. Angell Neighborhood Association fought block busting by realtors and worked on juvenile delinquency prevention programs. Marquette worked on having a say on the planning of a housing development in their neighborhood. Blue Lake-Dalton Township Neighbor- hood Association, Inc., struggled for survival as an entity separated from the city prOper. The neighborhood association attended by the writer was located in the Nelson neighborhood. The meetings were held weekly but could be altered according to the need, season of the year and interest. Because this study is concerned primarily with the input of a neighborhood association in the area of crime prevention and the criminal justice system, the majority of the information gathered centers on the Nelson Neighborhood 150 Association and the other associations are mentioned only when they have a unique feature that is important.to.the crime prevention area. The Nelson N.I.A. was chosen primarily because its president was also the director of the Human Develop- ment Division and the writer was more interested in the concept of the organized neighborhood than in any one particular association. In the course of time spent on this project the writer was able to follow Mr. Williams in his work and Observe his organizational abilities. Besides taking a series of notes the writer taped informal sessions with Mr. Williams. The writer also had access to the complete files of work pertaining to the neighbor- hood associations. A selected number of items regarding the various associations' activities can be found in Appendix C. The Nelson N.I.A.,6 started in 1964, was origi- nally centered around white residents who were concerned about block busting, property values and a changing neighborhood. Through the association's efforts the Nelson neighborhood has become an integrated interracial community.. The association as approximately 120 members from the 600 homes in the area. 6The Nelson neighborhood runs from Peck to Strong to 3rd on the east, to the railroad track on Henry Street on the west in Muskegon, Michigan. 151 Initially letters were sent out by the Human DevelOpment Division to the homeowners in the Nelson school district inviting them to discuss their changing neighborhood. A direct approach was employed; prOperty values, ghettoizing the neighborhood and other contro- versial issues were faced head on by the citizens. The result was the formation of a neighborhood improve- ment association made up of Black and Caucasian residents. It proved to be an instrument by which the neighbors had a voice in, and a control over, the future of their community. Once the peOple began to feel their own efforts were accomplishing something there was no limit to their goals and the achievement of these goals. They called in outside technical assistance when they needed it, otherwise they Operated on their own initiative. The Nelson N.I.A. conducted a survey in the neighborhood to find out the priorities of all the residents. Block captains were established as liaisons to the committee members and membership drives were conducted. A fee of one dollaraiyear was charged to join the association and a newsletter was sent out periodically informing the neighbors Of the various activities available to people of all ages. The neighborhood association meetings were held as the need arose. Sometimes they were once a month, or if a project was underway they were held as often as 152 once a week. Meetings were held regularly to renew members'faith in each other. They were held in homes,. churches, schools or Muskegon Area Development Council rooms. It was pointed out that the association offices are careful not to overburden the peOple with meetings unless there was a purpose and a recognized need. The meetings themselves were conducted according to Roberts Rules of Order but there was a friendly neighborly atmosphere as Opposed to formal rigidity. Initially, a series of committees was established. One was called the social concerns committee. This committee worked with programs for the elderly, the sick, preschOolers, the neglected and those in trouble with the law. This committee also arranged to buy and serve food for a family after a death had occurred or after the funeral service. Special people from the neighborhood were assigned to work with problem fami- lies. These people as empathic neighbors would help a particular family who might be having discipline lapses with their children, need housekeeping assistance, or, help with budgetary problems, domestic situations or the like. In the area of criminal involvement the social concerns committee worked with the police, especially the juvenile bureau. They assisted former offenders in attaining employment and gaining acceptance in the 153 neighborhood. They helped to ease the stigma of being a former offender. They tried to involve the former offender in neighborhood projects and the youthful offender in recreational programs. Another committee established was the neighbor- hood improvement staff. These peOple worked on housing, street lighting, street and alley repair, garbage prob- lems, block busting, steering and other related problems. They held beautification contests for yards, gardens and home care and issued certificates for any home improve- ments made by a resident. A certified area program (Michigan Title I) was introduced in the Nelson area and made available to other neighborhood associations. It was authorized by the Housing and Urban Development Act of 1968 (H.U.D.) and provides financial assistance in the form Of rehabilitation grants and low-interest loans in residen- ' tial areas to halt physical deterioration of those areas. A member of the Nelson N.I.A. was trained at City Hall for three months to learn the paperwork pro- cedures for the loans and grants. She then worked out Of the Human Development Division and began processing applications. Three local banks OOOperated with the N.I.A. on the small loans. Pe0ple were made aware of the program through the N.I.A. and when they applied, an N.I.A. representative and a known contractor inspected 154 the home and estimated the cost. If the family quali- fied, the work was done. In the Nelson area by October 17, 1972, seven homes had improvements made, one was still in progress, two were out to bid and twelve were not approved because the repairs exceeded the value.of the house or the parents separated and the husband's income exceeded the amOunt necessary for qualification. The screening done by the N.I.A. on this type Of a pro- gram insured that thoSe who needed the assistance were most likely to get it. The neighborhood improvement committee also sends letters and makes personal visits to families who have let their property run down. They write letters to landlords asking them to improve their prOperty. If there is no response the landlord is informed that city inspectors will be called to establish whether his prOperty meets the city code or should be condemned. Periodically, a housing survey is conducted by the N.I.A. so that they know their neighborhood and have a file of the homeowners, landlords and renters. Certificates of appreciation are given to members of the neighborhood who have worked hard to keep up their yards. Some of these peOple are invited to serve on the beautification committee. There are other events held, such as the Christmas decoration contest, that help people take pride in their prOperty. There 155 is also an association caroling group that visits and sings Christmas songs for the neighborhood. The philosophy behind the N.I.A. is to reward those who respond. Society, they believe, in the past has Often assisted others without motivating them to help themselves and, in so doing, has perpetuated their present condition. Another program encouraged by the neighborhood improvement committee was the building and selling of garbage racks by the youth of the area. Along with this there was a painting program established where the youth, under professional supervision, painted homes in the neighborhood throughout the summer and earned spend- ing money. The recreational committee of the N.I.A. was perhaps the most successful in providing activities for the youth and preventing idleness and potential delin- quency settings. They have established cultural activities, 4-H programs, sports prOgrams of all kinds, and they are attempting to make similar Opportunities available for residents of all ages. The summer recreational program deserves special comment. A survey was passed out in the school in order to determine the young people's interests. Later,1etters were distributed to the neighborhood homes posting a schedule of all the summer events. 'The prOgram was 156 coordinated with the community schools and the local parochial school. It consisted of arts and crafts, boys' and adults' baseball, girls' softball, women's softball, boys' basketball teams, a city track meet, swimming, roller skating, dances, cooking, music and charm classes and fishing. A football program was added in the fall. Karate classes and boy scout programs have also been established. A young adults' basketball team is spon- sored by the N.I.A. in the city league and the young adults have a social group affiliated with N.I.A. A group of neighborhood boys, along with a super- visor, set up bleachers to allow residents of the neighborhood to come down and watch many of the events. The recreation program also provided employment for some of the young adults in the area. Money came from the Community Summer Recreational Program. The youth workers were supplied with red Windbreaker jackets with the N.I.A. emblem. When the police patrolled the area they could stOp and talk to one of these youths to be assured that all was going well and no one was try- ing to break up their activities. It also reminded the neighborhood people that their program was at work. Another committee of the N.I.A. is the Ways and Means. Members of this committee put on fund raising programs, pancake dinners, potluck dinners, talent Shows, dramas, raffles, candy sales and other similar 157 events. These social occasions not only raise money but more importantly they provide the residents with the opportunity to come out and get to know one another better. Raising money is a constant problem but the . N.I.A.s do receive. donations from public and private agencies. If the city participates in federal funds through revenue sharing or any other programs in the future, the N.I.A.s are prepared to request funds for their programs. The N.I.A. studied the possibility of recommending a parental responsibility ordinance for families in the neighborhood who refuse to control the deviant behavior of their children. A violation could result in a fine, or jail and rehabilitation program for parents who allow their young people to commit a number of criminal acts. The N.I.A.s are involved with the local community college, especially with the students from the local neighborhoods who attend the college. The local schools also must answer to the Observ- ing eye Of the N.I.A. Children who need special programs are followed by the N.I.A.'s people. The Title I director of the federally sponsored school program checks with the N.I.A. to assess its needs and make known the reme- dial programs for children from problem families. There is a Community Education Program Offering day and night 158 classes for adults and there is no charge for people who have not graduated from high school. The police chief is a frequent Visitor to the Nelson N.I.A. Through his attendance at some of the meetings he decided to place two officers on foot patrol in the Nelson neighborhood to get to know the residents and to talk with the children. He stated that crime has gone down in the Nelson area by 25 percent in 1972. One of the causes he feels is the effectiveness of the Nelson N.I.A. His Officers state that the Nelson young people are now looked upon by the police as organized in their recreation, happy, using less profanity, integrated and vastly different from some other neighborhoods in Muskegon. There is also a higher rate of citizen crime- reporting and witness COOperation experienced in the Nelson neighborhood. Representatives from various companies attend certain neighborhood meetings. The N.I.A. recommends residents to them for employment and N.I.A. then backs up the person's work record by seeing that the party performs his job to the best of his ability. N.I.A. members attend city planning meetings and other city council meetings that they feel involve them directly. The Nelson N.I.A. works to keep an integrated ratio on the neighborhood association board. Elections 159 are held once a year. There is a president, vice presi- dent, secretary and treasurer, along with various committee chair peOple. The Nelson N.I.A. works with peOple who are detained in the county jail; this is usually on a one-to-one basis. They assist case workers from the_ Department of Social Services with problem families. Their work in juvenile court is expanding. Their work in adult court is limited again to individual cases. One judge is a member of the Nelson N.I.A. and has been very helpful to the group. The N.I.A. finds jobs and support for persons on probation, parole or former Offenders. They do their best work with the juvenile bureau of the Muskegon police department. As the organization becomes stronger, its success in the area of crime prevention should become evident. By working with problem families, redeveloping homes through loans and grants, encouraging educational and recreatiOnal programs.for all ages, COOperating with formal agencies and helping them improve their services, and above all creating a real neighborhood atmosphere and feeling, the N.I.A. is serving a real grass-roots function in today's city in the area of crime preven- tion. 160 PART II. METHODOLOGY Based on the Observations of Neighborhood Improve- ment Association (N.I.A.) meetings and activities for approximately an eight month period, the researcher designed an interview schedule utilizing Dr. Christopher 7 The Normative Sower's Normative Sponsorship Theory. Sponsorship Theory prOposes that a community program will be sponsored only if it is normative (within the limits of established standards) to all persons and interested groups involved. The focus of the interviews was to determine the role of an N.I.A. in crime preven- tion and the criminal justice system. I One of the major considerations when attempting to initiate a community program like N.I.A. as a crime prevention ally in the criminal justice system, is to determine how a number Of interested groups can have sufficient convergence of interests or agreement on common goals to bring about effective implementation. Each group involved and interested in crime pre- vention as part of the N.I.A. role must be able to , justify and legitimize the common group goal (crime reduction) within its own patterns of values, norms and 7Christopher Sower, "Updating Outdated Organi- zations:' The Normative Sponsorship Theory" (unpublished Paper, Michigan State University, 1967). 161 goals. The more congruent the values, beliefs and goals of all participating groups, the easier it will be for them to agree on common goals. The participating groups do not necessarily have to justify their involvement or acceptance of a group goal for the same reasons.8 Whenever areas of agreement are being identified between groups with a different normative orientation, it is important that the concept Of self—interest not be denied, becauseit cannot be expected that all groups will have common or similar motivations for desiring pro- gram development. Self—interest is not dysfunctional unless it contributes to intergroup contest or Opposition and diverts energy that should more apprOpriately be directed to problem solving.9 In the N.I.A. concept there is a built-in role for the use of technical assistance. This would involve an outside professional agency coming in to work with the N.I.A. only for as long as the N.I.A. could use their services. They would return only when asked. The chief technical assistance agency working with the N.I.A. in Muskegon is the Human Development Division of the 8ChristOpher Sower, et al., Community Involve- ment (Glencoe, Illinois: The Free Press, 1957). 9Robert Trojanowicz, Juvenile Delinquency, Con- gppts and Control (Englewood Cliffs, New Jersey: Prentice-Hall, Inc., 1973), p. 294. 162 Muskegon Area Development Council. It serves as the original organizer by uniting key peOple for the neigh- borhood. .Afteri the association has been established, the technical assistance is withdrawn and is available only upon the association's request. There is no coopta- tion. It is interesting that once the N.I.A. begins to see its own potential, its requests for outside technical assistance decrease. The N.I.A. uses many community agencies for resources when information is needed. For example, the police department personnel are called in to inform the group of the crime situation in the neighborhood. In return the association communicates to the police the attitude and type of policing that they desire. Another important concept that the N.I.A. would have to implement is viewing problems as challenges rather than areas of Opposition or conflict. The Norma- tive Sponsorship Theory postulates that programs that challenge the skeptics through involvement, participation and COOperative action will be more effective than pro- grams that are conflict oriented. Skeptics and cynics gain support when there is conflict and positions are polarized. If unreasonable demands are made by an N.I.A., other agencies react by overjustifying their positions and actions. The longer and more intense the conflict, the 163 less chance there is to identify and develop points of agreement from which viable solutions can be implemented. To test whether the concept of an N.I.A. could be effective in the area Of crime prevention, a study was made of its acceptance by the agencies in the criminal justice system. Three steps were undertaken to determine 'the viability of an N.I.A. in the area of crime preven- tion. Step one: The relevant systems in the criminal justice system were identified” In Muskegon twelve areas10 were considered. They include, in alphabetical order: Adult Court County Jail Department of Social Services Former Offender Ranks Juvenile Court Legal Aid Muskegon Police Department Nelson Neighborhood Improvement Association Present Offender Ranks Prosecutor's Office 11. Public Defender's Office 12. Security or Correctional Institution \DmQONU'IbLUNI-J O l—' O 0 Step two: Personnel from each of these components of the criminal justice system were interviewed concerning their own role (both ideal and actual) in crime preven- tion, what place they felt there was for an organized citizens group like N.I.A. in working with the criminal 10Each component will be explained in detail in Part III, Sampling. 164 justice system to preVent crime and what they considered the other components should be doing to work with N.I.A. in preventing crime. The interview design (see Appendix D) divided each question into three parts: Ideal (A) 1. What is the role of your organi- zation (for example, police) in crime prevention? 2. What place is there for organized citizens groups like N.I.A. in working with the criminal justice system to prevent crime? Actual (B) 3. What is your organization actually doing to prevent crime? 4. What are the citizens in Muskegon and eSpecially in N.I.A. doing to prevent crime? Alternatives (C) 5. What do you think are viable alternatives for citizens control- ling and preventing crime? 6. What do you think citizens groups (N.I.A.) see as viable alternatives for preventing crime? The second series of questions in the interview maintain the same pattern but they attempt to determine what each part of the criminal justice system feels the role of the other areas should be (ideal), is (actual), and viable alternatives toward the N.I.A. in crime pre- vention. Each interview, which was arranged in advance either with the individual himself or his supervisor, lasted approximately one hour. 165 The interviewer introduced himself as a researcher from Michigan State University conducting a study funded under the Department of Justice. (This I study was financed in part with a Department of Justice Criminal Justice Fellowship Award. See Acknowledgments.) It was explained that the person interviewed would remain anonymous and any information she or he gave would be recorded in a major category. For example, if the person was a police officer the answers would be analyzed along with the other police officers interviewed and the total police response would be incorporated and reported in the study. A brief explanation of N.I.A. involvement in crime prevention was given. It was emphasized that the study was concerned with the concept of a N.I.A. and not the personalities of N.I.A. members. One of the reasons for this clarification was because Of conflict and competition between various persons in the Muskegon Area Development Council (M.A.D.C.) and the Community Action Against Poverty (C.A.A.P.) programs. Certain words on the interview form such as "viable" were also clarified. Even though the inter- viewer tried to be flexible in the interview the format was kept consistent to increase reliability and validity. Because of the diversity of the backgrounds and opinions Of the interviewees, it was difficult at times to keep a 166 consistent focused interview. The writer feels, however, that this was accomplished. The interview was started with a non-directive lead question requesting a description of the inter- viewee's agency and his experience, age, education and other background information. The ideal role of his agency in crime prevention was asked, followed by the individual's ideas on the place of an organized citizen's group like N.I.A. in working with the criminal justice system to prevent crime. Specific questions were then asked to determine areas of consensus, dissensus, and alternatives with other agencies. All the .‘in‘tervfiews were carried out by the writer except four which were conducted by the Michigan State University project supervisor, Dr. Robert Trojano— wicz. He conducted four interviews with the Department of Social Services personnel to evaluate the interview format and see firsthand the overall direction of the study. The interview schedule was pretested with members of the Muskegon Police Department. It was at this time that it was decided to clarify some of the terminology of the interview schedule. The basic format of the schedule remained the same, however. A written log was made of each day's interviews. This informationirsdevelOped in the section on sampling. 167 Step three: The identification of the areas of agreement (consensus), disagreement (dissensus), and the viable alternatives were analyzed. A matrix method is utilizedfor this process (see Charts B and C). The norms and behavior expectations held by the twelve com- ponents of the criminal justice system relative to crime prevention are determined and then compared with each other. The alternatives each agency has defined for -itself are also compared with both the perceived and stated alternatives Of the other components. The areas of agreement are identified providing a base for common linkages between the components so that crime prevention problem solving will be facilitated. The areas of disagreement are also pinpointed so that potential obstacles that can hinder common problem solving can be recognized and dealt with accordingly. Four major tasks were undertaken by the reseacher to determine normative feasibility of N.I.A. involvement in crime prevention and the criminal justice system. The first task was to obtain a description of the N.I.A. and the other components of the criminal justice system regarding crime prevention; identifying significant events relating to this subject. This was accomplished through an eight month participant observation period by the writer. This involved attending weekly association Diagram Chart 3 168 of the Consensus-Matrix Method of Studying Organizations ' Norms and behavior expectations held by Norms and behavior expectations held about __. Adult court County jail Dept. of-. Social Services. Former Offender Juvenile court Legal Aid, Muskegon Police Nelson NIA Present offender _.._..._..‘_~ Prosecutor's office defender Public Security/ correctional institution Adult court self con- cept County jail self con- cept Dept. Of Social rvices self con- 692$. Former Offender self ”con— cept Juvenile court self con- cept Legal Aid self con- cept tpgkegon Police self con- cept elson Neigh- rhood Improve- ent Association self con- cept Present offender self con- cept Prosecutor's office self con- cept Public defender self con- cept curity/ orrectional nstitution self con- CELL}, 169 sowusuwumsw HonoHuuoquO\>uwusomm uncommon owflnon ouwuuo m.uou=uom0um unocuuuo unencun .<.H.z cemflmz ouwaom :ommxmo: umoocoo «Hem Oa< Hooch uooocoo uHmm UHSOU 0AMCT>§H ammocou waom umpcwuuo nuance umoocoo uawm moofl>uom Howuom mo peOEuuomwo mw>mumcu¢+H< .m Amsuo< .N HameH .H ummucoo uamm mw>mumcu¢Um¢ .n Hafiuod .N HTOOH .H Ham“ season mw>quCu¢yH¢ .m Hm5u0< .N enmeu . umooeou udom H assoc vague moquswmu Honuo assoc Ouwsw>=n unencuuo seesaw moud>num .oom uo .umoo Adan sucnoo unsoo paso< usonm pawn meowuowcuwm Heaven use Hanna >n can: mcoaumoouom Hmsuoo use Huopu usesonmao use nonsumsoo uo noon: mcwauwurouH no mucus: xenon: or» we acknown U uudfiu 170 meetings,.general meetings, organizational meetings, social events, money raising dinners and awards dinners. The second task was to Observe and evaluate the relationship between the selected agencies and N.I.A.s and any primary events related to this relationship. The third task was to determine how the concept of an N.I.A. and its role in crime prevention was perceived by the twelve selected components of the criminal justice system. Tasks two and three were accomplished both through observation and information obtained from the interviews. The fourth task was to probe for roles that are open to legitimate linkages between N.I.A.s and the other components of the criminal justice system. This was accomplished through analyzing the results of the interviews. The ultimate result of the analysis is the actual identification of a normative linkage model between N.I.A. and the components of the criminal justice system so that they cooperatively and jointly develOp a partnership in preventing crime and working on social problems. The information gathered and the model developed from the Muskegon N.I.A. research can then be replicated in other communities. 171 PART III. THE SAMPLE A randomization method was employed in this study to maximize the possibilities of drawing a representative sample from the population to be interviewed. The basic assumption of randomization is that every element, or some combination of elements, in the population has a specified chance of being included in the sample.1 Where random selection was impossible the writer explains the problems involved and the sample selected. Twelve areas of involvement were dealt with in this study: the Adult Court, the County Jail, the Department of Social Services, the Former Offender, Juvenile Court, Legal Aid, the Muskegon Police, the Nelson Neighborhood Improvement Association, the Present Offender, the Prosecutor's Office, the Public Defender and the Correctional Institution. The total number of persons involved in each area was determined as closely as possible and the square root of each group was chosen as the number to be interviewed (Table 1). The following describes some of the characteristics of the total sample. llNorman K. Denzin, The Research Act, a The- gggtical Introduction to Sociological Methods (Chicago: Aldine Publishing Company, 1970), pp. 81-143. Agencies and Personnel Participating in Study Table l 1722 § Total Group Participants Total Possible Percentage Adult court 6 16 37.5 County jail 4 15 26.7 (Dept. Soc. Serv. 8 72 11.1 Former Offender 3 -- -- Juvenile court 4 12 33.3 Legal Aid 2 2 100.0 Muskegon Police 11 100 11.0 Nelson N.I.A. 11 109 10.0 Present Offender 5 32 15.6 Prosecutor's Off. 2 7 28.6 Public defender 3 6 50.0 Sec-/Corr..Inst. 1 -- -- 60 371 16.2 173 NumberggRace, Sex Sixty people were interviewed. They either lived or worked in the city of Muskegon. There were fifty men and ten women. Fourteen persons interviewed were Black (Afro—American), forty-two Caucasian, two Mexican— American, and two stated that they were part Native American (Indian). These minority groups were not i restricted to any Specific area in the study categories, but were dispersed among the total group. I A33 The ages of those interviewed were evenly dis- tributed (Table 2). Twenty-five percent of the interVieweeS were in the 25-29 age group. The next largest group (50—54 years Old) was 16.6 percent Of the total. Those 29 or under constituted 58.3 percent of the total. Years of Experience The years of experience of those interviewed were evenly distributed (Table 3). The largest group (16.7 percent) had one to three years of experience. Former Offenders, present offenders and members 0f the neighborhood improvement association were excluded from this table because it did not apply. _Z‘-___.—:‘ .174 0H 0 m deuce a .umcH .HHOU\.oom Hoocwmoo OHHQom N _ .mmo m.uouooomoum m N Hoosmumo usomwum H .¢.H.z cowawz OOHHom somwxmoz a pad demon H H assoc oaasosbn a N noncommo Hoeuom .>me .oom .ummo a Hash ausoov assoc passe Ho>o use ow m I I m mm vm Om mvlmo velow mMImm vMIom mNImN mm Moons .sesum wau.aw.muaumauauuam.uo mama N wanna. 175 mug HO mm mNIHN ONI®H mHIHH OHIh wlv 0H MIH A cozy mmoq mooum on» :H musmmHOfluuum MO oucowuomxm mo mummy. m OHQMB sauce .uwsH .HHOU\.oom Hooommwo Deanne .wmo m.uousoomoum meadow somoxmoz use among .uusou OHwGo>9h .aom .oom. .umwo Hana muasoo assoc posed 176 Formal Education The amount of education varied according to the position held and the role played in the community set- ting (Table 4). Because of the number of professional people interviewed, the educational level was very high in many cases. Hewever, all educational levels are represented. The largest group (23.3 percent) were those with one to three years of college. Agencies Interviewed The sample and the unique characteristics of each area are presented in alphabetical order. Adult court. The adult court in the Muskegon area is comprised Of circuit and district court. In the circuit court there are three judges, six probation counselors, and one parole agent. The district court has five judges and one probation counselor. The parole agent is the same person as in the circuit court. A total of sixteen personnel were eligible for the inter- view. Six were chosen at random: one circuit judge, two district judges, one circuit probation counselor, one district probation counselor and one parole agent. They were interviewed in their respective Offices. County jail. The Muskegon county jail has fif- teen personnel; four were interviewed. Three were members 177 OH ownmoo seq moummo Hoooom ousmoo mnH osonHo mucous: monotone ommHHOU omOHHoo Ho coon omHm HHIm mooum on» SH mucomHOHuHom mo sOHuoooom Hmsuom v OHQMH m HMflOB .umsH .MHOO\.Omm “coconut OHHnom .mmo m.uouooomoum H Hooowmmo ucmmmsm N .4.H.z somez OOHHom governs: oHe Hmqu swoon OHch>ob “consume umfiuom .>me .oom .umoo sewn sussoo assoc eases mmOH HO undo» m 178 of the rehabilitation team and one was in the area of security. It was decided after Speaking with the Sheriff and rehabilitation director that these individuals would be chosen rather than more custodial personnel because of the nature of the project. The result was that the four chosen were not random but chosen by the administration as more representative Of county jail personnel who would come in contact with the efforts of the community to assist in county jail rehabilitation programs. They were interviewed in the county jail Offices. Department of Social Services (D.S.S.). One division Of the Muskegon Department of Social Services was chosen for the interviews. This was the department directly connected with services to problem families and neglected and delinquent children. There were seventy-two individuals eligible for the sample. Eight were chosen at random. One interviewee was in administration and seven were fieldworkers. They were interviewed in the Department of Social Services' conference Offices. Former offenders. A list of ten known former Offenders was supplied by a community worker. Three were chosen at random for the interview. The interviews took place at the Muskegon Area Development Council's con- ference room. 179 The formal statistics indicate that there are approximately fourteen new parole cases in Muskegon county per year and the parole caseload is 90.1 parolees per month (approximately 70 percent are from the city of Muskegon). All the persons interviewed had been in jail and two had served considerable time in state prisons. Juvenile court. Juvenile court has twelve personnel. Four were selected at random to participate in the study. They were interviewed in their individual Offices. Included in their number were one administrator and three probation counselors. Legal Aid. Two lawyers presently work for Legal Aid services. They were both interviewed in their respective Offices. Muskegon Police. There are one hundred members in the Muskegon Police Department. Eleven were chosen for the interview. One was in administratiOn and was interviewed in his Office. Three were from the juvenile bureau and they were interviewed individually in their Offices. Six were interviewed in their squad cars. The interviewer Signed an insurance waiver and rode with each officer while he was on duty. In one case two officers were riding tOgether, otherwise there was one 180 man to a car. Two members of the detective bureau were interviewed in their offices. The officers selected to be interviewed were chosen at random according to who was on duty the day the interviews were conducted. In two cases the Officers were interviewed on another day because they had to leave their office before the interview could be con- .. ducted. Nelson Neighborhood Association. The membership list of the Nelson Neighborhood Improvement Association was obtained and divided into men and women. Then a random sample of each division was taken. This approach was used because there were many couples involved; this allowed either party to be chosen. It also insured an equal distribution of men and women in the sampling. There were one hundred and nine members listed at the time of the interviews. Eleven were chosen to be partici- pants. They were called on the phone and the purpose of the interview was explained to them. An appointment was arranged at their convenience either in their home (seven) or at the Muskegon Area Development Council offices (four). If a resident refused to be interviewed for per- sonal reasons the next person on the list was chosen. 181 Present offender. The same day that the personnel from the county jail were interviewed, four occupants of the county jail cells were also interviewed. One other participant was interviewed on another date. At (the time of the interviews, approximately thirty-two persons from the city of Muskegon were in the jail cells. Five were chosen for the interviews. These were chosen at random where security permitted. For example, one of the individuals chosen had been to court that same day and had been sentenced to Jackson Prison (four to ten years). It was decided that he should be passed over in the sample because of his particular circumstances. ' The sample included two Caucasian males, one black male, one black female and one Mexican-American male. All were in jail on felony charges. They were interviewed in the jail conference or visiting rooms. The one person interviewed the following day was seen at the probation office conference room located in the same complex as the county jail. Prosecutor's office. Two persons from the seven member prosecuting staff were interviewed. These were chosen by the prosecutor because he stated that they would be familiar with the policy of his office towards community involvement. It should be noted that the prosecutor had been recently elected to his office and 182 had a new staff. The two persons were interviewed in the prosecutor's offices. Public defender. There are six private attorneys who have been appointed to serve as public defenders for any person not able to afford his own attorney. Three work with juvenile offenders and three with adult offenders. One public defender was chosen at random from the three who defended juveniles and two who defended adults were chosen at random. They were interviewed in their respective Offices. Security/correctional institution. It has been pointed out earlier in this paper that a minimum security correctional facility was under construction in Muskegon, Michigan, at the time of this study. It was decided to interview personnel from this institution to determine their attitudes toward an organized neighborhood's role in the criminal justice system and specifically in work- ing with the persons in a correctional facility in its city. Because no one had been hired at the time of the study to work in the institution it was decided to con- tact the Department Of Corrections in Lansing, Michigan. The writer was directed to a member of the Treatment Department in the Department Of Corrections. This person represented what the policy of the department would be 183 towards citizen involvement in the treatment phase of the institution. It was decided to interview only one adminis- trator to Obtain a general idea Of what roles would be Open to an organized neighborhood in a correctional facility. The administrator was interviewed in his state office in Lansing, Michigan. In general, it should be pointed out that the writer received complete cooperation from all parties throughout the study and the interviews. The writer arranged the interviews both over the phone and during initial meetings with the individual divisions of the criminal justice system. The study was not advertised in any way and the majority of the people interviewed knew nothing about the nature of the interview until it actually took place. The majority of the interviews were carried out at the appointed time. Seldom did an interview have to be rescheduled because Of a conflict. Each interview lasted approximately one hour. The participants were assured of anonymity in regard to the information they gave during the interview. This allowed for full expres- sion and complete freedom during the interview. Chapter 5 ANALYSIS The analysis of the information gathered through the interview process centers around a series of profiles developed from the data. These profiles are determined by comparing and condensing the interview material with areas of consensus (agreement) and dissensus (disagree- ment) recorded. Suggested alternatives are listed. The profiles include responses from the persons in a specific agency or group, and also the ideal and actual organized citizen involvement. Each person in the agency or group is also asked for his Opinion on the place of an organized citizen's group like a neighborhood improvement associ- ation (N.I.A.) in working with the criminal justice system to prevent crime. The second series of profiles relates to the perception of one agency or group towards the other agencies or groups interviewed and their role in assisting citizens groups (N.I.A.) in crime preven- tion. Again the ideal role and the actual role are asked for and suggested alternatives are listed. In the final chapter (6) of this study the comparisons and conclusions are drawn from the profiles. 184 185 THE ADULT COURT: A PROFILE Self Concept Ideal role. The adult court personnel see their ideal role in crime prevention as one of setting limits for their clients, referring peOple to proper resources, using sentencing as a deterrent to crime, returning a parole violator and counseling individuals. They try to see the individual as a whole person including his social history and environmental background. Their role is to control the person from offending again and they attempt to break the offender's negative life cycle. If the client is proven guilty (after a fair trial) he must be punished according to state law. The punishment must fit the crime. There was consensus on this profile by those interviewed. Actual role. In actual fact, the adult court personnel felt that they are accomplishing their ideal role in crime prevention by keeping a close'check on their probationers, using training programs (twelve percent of parolees), the alcohol and drug programs, and professional counselors. They considered their use of counseling on a one-to-one basis as good. They are consolidating the court to make it more efficient and are hiring a court administrator to facilitate the 186 flow of court cases and tO improve the effectiveness of the court process. One-third of the parties interviewed expressed the opinion that nothing was actually being done by the adult court in the area of crime prevention. Ideal organized citizens role. There was unani- mous agreement from the adult court sample that there is a place for an organized citizens group such as a neighbor- hood improvement association. They believe the organized neighborhoods can work with the criminal justice system in the following ways: serving as volunteer proba- tion sponsors, especially working with the juvenile Offender; being available as a resource to counsel mili- tant individuals; assisting in education, employment and training; helping to improve the physical appearance of homes and the neighborhood; creating alternatives for school drOp-outs and problem families; developing recreational facilities; encouraging neighborhood aware- ness; monitoring high school events; fostering racial OOOperation; changing attitudes, and making better use of community services. Actual organized citizens role. The adult court considered actual Muskegon citizen involvement in crime prevention to include the drug and alcohol programs, volunteer work with probationers, employing former 187 offenders, and involvement in the Community Action Against Poverty program, the Muskegon Area DevelOpment Council and neighborhood associations. One adult court employee felt no citizen involve— ment was really taking place. This party expressed the opinion that the feeling among the citizens to become involved was prevalent, but no major effort was being extended by the court. Alternatives suggested by the adult court for citizens to control and prevent crime are: more work with drug problems (perhaps England's control centers for confirmed drug users), more involvement in the volunteer probation counselor programs, more developing and training of community leaders, more use by industry of retirees to train unemployed citizens, the use of the silent Observer program, a neighborhood ombudsman, a community court watcher concept and more overall use of volunteers. Alternatives suggested by the adult court as to what they think an organized citizens group considers as viable steps to assist in preventing crime are: lowering the crime rate by assisting young people through recreational programs and employment Opportunities, helping individual cases by informing the judges and their staffs of the community's judgment of the person, helping the criminal justice system understand the black culture, and offering suggestions for more personal and community ism-111.“: ~ ~ 1.111---- 188 safety measures against crime. They also feel that citizens want vocational training, and state that the courts should have more exposure to community activities by attending their events and giving talks to neighbor- hood groups explaining the rOle Of the court. The adult court feels that the citizen wants the court to avoid extremes (too punitive or too permissive philosophies). Citizens also want home rehabilitation, better street lighting, more assistance for Older citizens and more OOOperation with the school programs and the courts. The Adult Court: County Jail Role Ideal role. The adult court expressed the Opinion that the county jail personnel should use organized citizens groups as a resource. They can establish communication with, and feedback to, the county jail and assist in the work release program. The organized citizens group in a given neighborhood can help develop a rehabilitation plan for the inmate and work with vocational training programs. One-third of the adult court personnel expressed no Opinion on this subject. Actual role. In actuality, the adult court felt that the county jail was using neighborhood groups in their rehabilitation programs. This was especially true 189 in drug, alcohol and employment programs. Certain church groups are involved in jail visitations and sponsoring individual inmates. One person interviewed felt that the organized neighborhood was being used only in a limited degree and that much more could be done. Alternatives suggested by the adult court per- sonnel as to what they think the county jail personnel see as possibile Opportunities to assist an organized citizens group in crime prevention are: using more volunteers under supervision, hiring a bus for the work release program, working with deputies on attitude change, using neighborhood groups for housekeeping chores,‘ and improving communication between the citizen, the inmate, and the jail personnel. The Adult Court: Department of Social Services Role Ideal role. There is a good liaison role needed between the organized neighborhood and the Department of Social Services. There has to be more responsible action to citizens' needs. The available services of the Department of Social Services should be known by the community and they should be aware of the role of the problem family committee of a neighborhood association. One-half of the people interviewed from the adult court had no opinion on what the ideal role of the 190 Department of Social Services should be in assisting citizens groups (N.I.A.) in crime prevention. Actual role. The Department of Social Services and neighborhood groups are working together with problem families, and processing complaints of welfare fraud and support.cases through the Friend of the Court pro- gram. The adult court personnel also indicated the involvement Of citizens through church groups. They expressed the warning to safeguard the rights of recipi- ents Of Department of Social Services assistance. Alternatives suggested by the adult court per- sonnel as to what they think the Department of Social Services sees as possible Opportunities to assist an organized citizens group (N.I.A.) in crime prevention are: to work together more with problem families, and to hire people on welfare to wOrk with other families and the Department of Social Services. It was noted that a special type of person was needed to work in this capacity. The Adult Court: Former Offender Role Ideal role. There is a place for the former offender working with organized citizens groups, espe- cially preventing others from getting into trouble. There needs to be more of an effort made by the total 191 criminal justice system to put the former offender back into the mainstream. Corrections and the court have to take the lead and the churches and neighborhood associ— ations have to follow that lead. The former Offender should be assimilated into the neighborhood and his past Should not be an albatross around his neck. Actual role. The former offender is playing some part in drug education programs, halfway houses and employment programs. However, it is a limited role. Alternatives suggested by the adult court per- sonnel as to what the former offender sees as possible opportunities for him to assist an organized citizens group (N.I.A.) in crime prevention are: assisting in the jail rehabilitation program, more one—to—one counsel- ing, working with the school system, helping other former offenders, and building up employment possibilities for former offenders. The Adult Court: Juvenile Court Role Ideal role. The juvenile court should play a greater role in working with the organized citizens group because juveniles can benefit more from such a relationship than the adult offender. There are many resources available and the organized citizens group can help make parents more accountable. The juvenile 192 court can work with the citizens to develOp recreation and employment opportunities for young peOple. The responsibilities can be shared through a close working relationship between the court and the organized citi— zens group. One-half of the adult court personnel expressed no opinion on the ideal role. Actual role. There is some group work being done and Big Brothers is functioning within the court. Other than that the relationship between the juvenile court and citizens groups is very poor. Alternatives suggested by the adult court per— sonnel as to what they think the juvenile court sees as possible opportunities for assisting organized citizens groups (N.I.A.) are: the use of more one-to- one volunteers and a rotation of the presiding judgeship. The Adult Court: Legal Aid Role Ideal role. Legal Aid Should be a resource to organized citizens groups. They should educate the public to their services. Actual role. Legal services are known and available to the community. They do go to the schools 193 to explain their program but there are only two lawyers and much of their time is spent on divorce cases. Alternatives suggested by the adult court per- sonnel as to what they think Legal Aid sees as possible 'Opportunities for assisting organized citizens groups (N.I.A.) in crime prevention are: more referrals from the Department of Social Services, more one-to-One coun- seling and speaking to groups to educate them to Legal Aid services and citizens rights. Perhaps the Bar Asso- ciation can assist in this area. The Adult Court: The Police Role , Ideal role. The police role should consist of good training in the area of police-community relations. The police should know the neighborhood where they work and there should be no vigilante—type citizens patrol. One-third of the adult court personnel expressed no opinion on the ideal role. Actual role. The juvenile bureau works well with the neighborhood associations. They work with the juveniles in the school on drug education and traffic safety. There are recreation programs sponsored by the police. The police have had in-service training in police-community relations. There is still a feeling of fear and apprehension about the uniformed police officer. 194 Alternatives suggested by the adult court per- sonnel as to what they think the police see as possible Opportunities for assisting organized citizens groups (N.I.A.) in crime prevention are: more police work with neighborhood groups and a mutual appreciation of.each others' roles; more work with schools; more upgrading of police training; better recreational facilities fOr youth (both indoor and outdoor); citizen patrol for domestic situations, gang problems and monitoring school events; a rumor clinic in times of.crises to inform police Of impending trouble, and more positive leader- ship in neighborhood groups. The Adult Court: Prosecutor's Office Role Ideal role. The prosecutor's office should talk with a spokesman from a neighborhood association on a . given problem. The prosecutor should talk to neighbor- hood groups tO acquaint them with his services and the court process. By communicating with the peOple the prosecutor can better serve the citizens' needs. Actual role. The prosecutor's office has had a change of persOnnel. They do talk and work with groups to cut down the crime rate but most Of their time is spent in court. They have started a monthly report on warrants issued, processed and tried. 195 Alternatives suggested by the adult court per- sonnel as to what they think the prosecutor's office sees as possible Opportunities to assist organized citizens groups (N.I.A.) in crime prevention are: better support in testifying in criminal prosecutions and the availa- bility of key people in the neighborhood to communicate with the prosecutor's office. The Adulttgourt: Public Defender Role Ideal role. The public defender should defend the poor and advise them of their rights. They should use the organized citizens groups (N.I.A.) as resources for information so they can know their clients better and work out acceptable solutions for their problems. One—half of the adult court personnel expressed no opinion on the ideal role of the public defender. Actual role. The county commissioner appoints private attorneys to serve as public defenders at eigh- teen thousand dollars a year. The quality is not as good as that which they provide their clients in the private law practice. There is not much public relations done. They are serving the public, they know the law and they are doing an adequate job. There are some negotiated pleas taking place. 196 Alternatives suggested by the adult court per- sonnel as to what they think the public defender sees as possible Opportunities to assist organized citizens groups (N.I.A.) in crime prevention are: assisting in individual cases with information, a form of working liaison between N.I.A. and the public defender without “a watch and ward society" developing. The Adult Court: Correctional Institution Role Ideal role. Organized citizens groups (N.I.A.) should be able to assist the correctional institution in rehabilitation programs, social development for the inmates, job Opportunities, group therapy, recreation programs, education and vocational training. Actual role. The preparation for the correctional institution and its interaction with the community has been limited. Alternatives suggested by the adult court per— sonnel as to what they think the correctional institution sees as possible opportunities for assisting citizens groups (N.I.A.) in crime prevention are: use community groups for individual contacts, volunteers, group coun- seling, and work furloughs; the formation of a reclama- tion committee and a chapter of the Junior Chamber of Commerce in the institution; talk to the council of 197 churches and N.I.A.s to determine how their services can be best used. THE COUNTY JAIL: A PROFILE Self Concept Ideal role. The county jail personnel are divi- ded in their thinking about the ideal role of their facility in the area of crime prevention. They view the jail as treatment oriented. It is usually the first con- tact a client has with correctional personnel. Possibly the problems of each individual should be identified and available resources from the community utilized. How- ever, perhaps the ideal role of the jail is simply a holding or security facility until other alternatives can be found. A rehabilitation program has been started in the jail and there are hopes that treatment will win out over the strict security role. Actual role. In actual fact the county jail personnel are developing a very energetic rehabilitation program. They are using education classes, group therapy, individual counseling, vocational training, work release programs, job finding, follow-up on released clients (six months), and they are coordinating their program with.existing community programs, especially in 198 the drug, alcohOl, educational, vocational and counseling areas . Ideal organized citizens role. There is unani- mous agreement among the county jail personnel interviewed that there is a place for an organized citizens group (N.I.A.) working with the criminal justice system to prevent crime. They believe this concept can be applied in developing a closer relationship with the schools to help pre-delinquents, in creating recreational programs, in organizing community leaders and in drawing up goals and objectives to wOrk with the formal members of the criminal justice system. Actual organized citizens role. According to county jail personnel, the citizens of Muskegon are work- ing on crime prevention. Their efforts vary. Some citizens have very little knowledge of their role and some are making concerted attempts in this direction. Some crime prevention techniques being used include the silent observer program of citizens calling the police without having to give their name, a Citizen's Advisory Committee for the jail rehabilitation program, and citizen work in the school system. The neighborhood associations have recreational programs and Community Action Against Poverty has community programs. It has been the experience of the jail personnel that if 199 requests are made for citizen volunteers, they are eager to come forward to help. Alternatives suggested for citizens to control and prevent crime are: educating one another through neighborhood associations to the various resources in the community; forming committees to work with these agencies (such as the county jail); serving as volunteer probation sponsors; working on tolerance in racial prob- lems; helping to seek out and actively develop job Opportunities for former offenders. Alternatives suggested by the county jail per- sonnel as to what they think citizens groups (N.I.A.) see as possible Opportunities to assist in preventing crime are: informing other citizens about existing crime prevention programs, such as the jail rehabilitation program; having county jail personnel speak to neighbor- hood groups to establish rapport and break down defenses on both sides; having certain citizens work with indi- viduals and families to help find employment with the Michigan Employment Commission; voting for an increase in correctional programs; and helping develop recreational programs. The County Jail: Adult ggurt Role Ideal role. The county jail personnel see the ideal role of the adult court in assisting citizens groups 200 (N.I.A.) in crime prevention as one of working with cer- tain individuals in the citizens group tO develop alternatives to institutionalizing offenders. Some sug- gestions are: volunteer probation sponsors, employment counselors, work release programs and educational opportunities. The adult court should take the initia- tive to communicate with citizens groups and promote a mutual trust. Adult court should have a representative from each neighborhood to serve as a contact person to help in preparing better pre-sentence investigations. Agtual rOle. In actuality very little is being done by the adult court to work with citizens groups in the area Of crime prevention. There is some use of citizen effort in educational programs, work release programs and the Skills Training Center. There is no ongoing program, rather any attempts to involve citizens depends on the individual probation officer or the judge. One-half of the jail personnel interviewed stated that they felt there was no real communication between adult court and citizens groups going on at the present time. . Alternatives suggested by the county jail per- sonnel as to what they think the adult court sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: working with individuals on a VOlunteer basis; develOping more job Opportunities for 201 clients; working with family problems; assisting in pre- sentence investigations. The County Jail: Department Of Social Services Role Ideal role. The ideal rOle Of the Department Of Social Services in assisting citizens groups (N.I.A.) in crime prevention according tO the county jail personnel is to have an Office in each neighborhood area so that the neighborhood groups can be used as a resource in dealing with problem families. They should educate citizens to their services by talking to the various groups. Actual role. The Department Of Social Services is using citizen volunteers to work with elderly per- sons. It furnishes speakers to groups and also has foster care and adoptive couples organizations. It is working for an attention center for young people. Alternatives suggested by the county jail personnel as to what they think the Department Of Social Services sees as possible Opportunities to assist citizen groups (N.I.A.) in crime prevention are: setting up local offices in the community; communicating better with problem families to prevent further crime; and more use Of neighborhood help and cooperation. 202 The County Jail: The Former Offender Role Ideal role. The county jail personnel are in total agreement that the former Offender should have a definite rOle in assisting citizens groups (N.I.A.) in crime prevention. The former Offender is a part Of the neighborhood and he can work with young people and adults to prevent them from repeating his mistakes. In return, the neighborhood can Offer the support and posi- tive influence to the former Offender. He can be a key man in the neighborhood. Actual role. In actual fact very few former Offenders have a real role Offered tO them. One worked with the jail program, another in a youth program and some have become involved as alcohol counselors and drug therapists. Alternatives suggested by the county jail personnel as tO what they think the former Offender sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: talking tO others about his negative experience in order to prevent them from making some Of the same mistakes; encouraging them to accept him and help him in reintegrating himself into the community; assisting him to find a job and feel like a normal citizen. 203 The County Jail: Juvenile COurt Role Ideal role. There is total agreement among the county jail personnel that the role of the juvenile court in assisting citizens groups (N.I.A.) in crime prevention is extremely important. Juvenile court can work with a N.I.A. to help a family who is having problems with their children. The N.I.A. can encourage the family to use the available community resources. Actual role. The county jail personnel do not think that very much communication is taking place between the juvenile court and the N.I.A. Individuals from the court do speak to groups and work with the schools. Alternatives suggested by the county jail per- sonnel as tO what they think the juvenile court sees as possible Opportunities tO assist citizens groups (N.I.A.) in crime prevention are: working through the schools and neighborhood groups to help problem families; using one family to assist another; and helping tO create solutions to delinquency problems. The County Jail: Legal Aid Role Ideal role. The county jail personnel agree that the ideal role Of Legal Aid should be to assist 204 citizens groups (N.I.A.) in crime prevention and tO extend itself into the community and be available for legal services. Actual role. The county jail personnel agree that Legal Aid is known and available to the community. Alternatives suggested by the county jail per- sonnel as to what they think Legal Aid sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: to continue to communicate and educate peOple to their role as a Legal Aid office. The Countnyail: The Police Role Ideal role. The county jail personnel are in agreement that the ideal police rOle in assisting citi- zens groups (N.I.A.) in crime prevention should consist of establishing rapport with the neighborhoods by being in the community, talking with peOple, working with the schools and allowing the citizens to constructively demonstrate their policing needs. Actual role. The county jail personnel agree that the police are working in the schools but community rapport is dependent On the individual Officer. There is room for much improvement in this area. Alternatives suggested as to what the county jail personnel think the police see as possible 205 opportunities to assist citizens groups (N.I.A.) in crime prevention are: attending N.I.A. meetings by invitation, being available in the schools, and develop- ing a system Of communication to explain police behavior tO citizens. The Countngail: Prosecu- tor's Office Role Ideal role. The county jail personnel are in agreement that the ideal role Of the prosecutor's Office in assisting citizens groups (N.I.A.) in crime prevention should be to educate the N.I.A. to his rOle, develop systems Of deferred dispositions which could involve the N.I.A., and be available for the citizens groups to exchange ideas with them and determine priorities. Actual rOle. In actuality nothing is being done to accomplish the ideal objectives according to county jail personnel. Alternatives suggested by the county jail per- sonnel as to what they think the prosecutor's Office sees as possible opportunities to assist citizens groups (N.I.A.) in crime prevention are: their cooperation as witnesses and their input at establishing priorities. 206 The County Jail: The Public Defender Role Ideal role. The county jail personnel think that the ideal rOle Of the public defender in assisting citi- zens groups (N.I.A.) in crime prevention should be one Of working with the N.I.A. to inform them of his rOle and receive their input as to the character of the defendant. In this way, a fair trial can be conducted and a viable plan can be determined if the person is found guilty. Actual rOle. In actual practice the county jail personnel feel that there is some contact between the public defender and the citizens groups, but it is limited by the large number Of cases being handled by the public defender. Alternatives suggested by the county jail per- sonnel as to what they think the public defender sees as possible opportunities to assist citizens groups (N.I.A.) in crime prevention are: an honest, reliable community input; support for chemically dependent people; employment possibilities for clients; and that N.I.A. can serve as a community base for information to and from the public defender's Office. 207 The County Jail: Correc- tional Institution Role Ideal rOle. The county jail personnel are in agreement that the ideal role Of the correctional insti- tution in assisting citizens groups (N.I.A.) should be tO inform them Of their rehabilitation programs and use N.I.A. as a resource, especially on a volunteer basis. Actual rOle. The correctional institution has used the newspaper and speakers to inform the community Of their program and it appears ready tO use N.I.A. as a resource. Alternatives suggested by the county jail per- sonnel as to what they think the correctional institution sees as possible Opportunities for assisting citizens groups (N.I.A.) in crime prevention are: training peOple to work at the institution, especially minority per- sons; working with families Of persons in the institution, using N.I.A. as a resource for employment of clients upon their release. THE DEPARTMENT OF SOCIAL SERVICES: A PROFILE Self Concept Ideal rOle. The role Of the Department Of Social Services in crime prevention should be one Of a referral source for families when they are first having problems. 208 The caseworker should work with families to help them order their lives and control their behavior. Actual rOle. The Department of Social Services personnel agree that they are successful in preventing crime by helping young people in the areas of school problems and drug education, and by their asSistance in domestic problems, welfare programs and other counseling situations. Ideal organized citizens role. The Department Of Social Services personnel are in agreement that there is a definite place for organized citizens groups (N.I.A.) in working with the criminal justice system to prevent crime. This is especially true in relation to young people, problem families, employment difficulties, recreational facilities, neighborhood improvement and cooperation with existing agencies. Actual organized citizens role. Citizens in Muskegon, according to some of the Department of Social Services personnel, are involved in crime prevention through the silent Observer program, Community Action Against Poverty, Guardian Of the Peace program, Neighbor- hood Youth Corps, Boy Scouts and Girl Scouts, church groups, drug programs and neighborhood improvement associ- ations. 209 Forty percent Of those interviewed expressed no Opinion on this question or considered citizen partici- pation very low. Alternatives suggested by the Department Of Social Services for citizens to control and prevent crime are: education programs to inform parents about current youth problems, more recreational programs for yOung peOple, a youth attention center, day care centers, more participation in Big Brothers, more drug education programs, more citizen involvement with the schools, creation of a job committee to seek employment for all ages, working on home improvements, integrating former Offenders back into the community, checking on Older citizens and reporting suspicious people or events to the police. Alternatives suggested as to what the Department Of Social Services thinks citizens groups (N.I.A.) see as possible Opportunities for preventing crime are: more involvement of minority groups in neighborhood and city decision making, more recreational programs for young peOple, better vocational programs, better street lighting, more drug programs, more citizen and neighbor- hood communication with the city government, and more neighbors watching each others' homes. 210 The Department Of Social Services: The Adult Court Role Ideal rOle. The personnel from the Department Of Social Services believe that the rOle Of the adult court in assisting citizens groups (N.I.A.) in crime prevention should be one Of finding and working with the needs of the people. There should be direct communication on an informal basis between the adult court and the neighbor- hood association. For example, the probation Officer can check with the neighborhood association to gain information about a particular probationer and he can use members of the neighborhood association as sponsors tO help support the probationer on a volunteer basis. The judge should be familiar with various members Of the community so that he can use them as resources to learn more about the community. There is a need for a consistent method Of sentencing offenders. The adult court should work closely with other agencies such as mental health.‘ There should be an exchange of ideas on both sides. The adult court should work with neighborhood associations in areas Of employment and job training. The concept Of a court watcher is also needed for neighborhood participation. If the court watcher is used constructively he can inform the court of the community feelings and instruct 211 the members Of the neighborhood association on the role of the court and the decision Of the court. There was one member Of the Department Of Social Services who felt that the adult court had no role assisting citizens groups in crime prevention. Actual role. The adult court works with senten- cing Of individuals which also requires a presentence investigation. They do some work with the volunteer probation Officers and they also make referrals to some agencies Vfilfll vocational and rehabilitational programs. A minOrity Of the Department Of Social Services personnel felt that the adult court was "treading water" and heavily backlogged. For these reasons, they feel, not very much is being done in the area Of citizen involve- ment. Alternatives suggested by the Department Of Social Services personnel as to what they think the adult court sees as possible Opportunities to assist organized citizens groups in crime prevention are: citizens should show more concern with parolees and probationers; they should assist in preparing more intense pre-hearing investigations. This would allow the probationer's complete situation to be considered rather than just his particular crime and enable judges to see citizen involvement as a useful resource to help 212 the individual. The adult court should also use the neighborhood association tO help with problem families and should use more volunteers. The Department Of Social Services: The County Jail Role Ideal role. The Department of Social Services 'personnel believe that the role Of the county jail in assisting citizens groups (N.I.A.) in crime prevention should be one of open communication tO insure proper treatment of the peOple in jail. They should also allow citizens to work with certain Offenders to assist in the rehabilitation process. Jail personnel should allow citizens groups to help in building up the library and other programs in the institution._ The citizens group could concentrate on the physical condition of the jail also, to help eliminate abuse and neglect. They can also assist in work—release programs. The county jail rehabilitation team should use citizens from the neigh- borhood associations in their program to help develop plans for an inmate or members of his family if they need assistance. Actual role. There is a rehabilitation program going on presently in the county jail with some community involvement. They have teaching programs and encourage 213 church groups to participate. The Department of Social Services personnel were divided in their opinion on what actually was taking place in the county jail in rela— tionship to citizen involvement. Two members Of the county jail personnel expressed no Opinion. Three mem- bers felt the county jail was strictly a holding action for either those serving a jail sentence or waiting for“ trial or waiting to be sent to another institution. One member considered any county jail interaction with the citizens group as strictly a "farce." Alternatives suggested by the Department of Social Services personnel as to what they think the county jail personnel see as possible Opportunities to assist an organized citizens group in crime prevention are: using citizens groups in teaching roles, job finding, or other rehabilitation treatment. They foresee a problem from the custodial staff who emphasize that punishment is a deterrent to crime. The Department of Social Services: The Former Offender Role Ideal rOle. The personnel from the Department Of Social Services believe that the role Of the former Offender in assisting citizens groups in crime prevention is a major one. There is definitely a place for him in drug rehabilitation programs. Former offenders can give 214 juveniles an idea of the consequences of illegal behavior. The offender has been there and he can impress others with its seriousness. Former Offenders could train other former Offenders to work as counselors with young people. The effectiveness of this would depend on the former offender himself. The neighborhood association can help integrate the former Offender back into the community. They can also help him get started with a new job. A particular former Offender can work with the young and encourage them away from a role Of crime and can be a real asset for a neighborhood association program. There was total agreement among the Department of Social Services personnel on the role Of the former Offender. Actual role. The Department of Social Services personnel feel that the former offender is assisting citizens groups in crime prevention in the drug rehabili— tation program, the Neighborhood Youth Corps and other similar programs. Alternatives suggested by the Department Of Social Services personnel as to what they think the former Offender sees as possibile Opportunities to assist orga— nized citizens groups (N.I.A.) in crime prevention are: assisting in working with youth to prevent future criminal behavior; more personal work in schools and in 215 the streets; helping change attitudes Of the average citizen toward the Offender; and assisting other former Offenders in the area of employment. The Department Of Social Services: The Juvenile Court Role Ideal role. The Department Of Social Services personnel believe that the ideal role Of the juvenile court in assisting citizens groups in crime prevention should revolve around preventing juvenile Offenders from becoming adult Offenders. They should work with other agencies to help youngsters keep busy and involved in the community. They should work with neighborhood associations to help find alternatives for young peOple. Treatment should be less punitive and be more concerned with the family as a whole. There should be more coordi- nation between the school, the court and the neighborhood associations. Juvenile court personnel should work with the neighborhood associations to develOp the volunteer probation Officer concept. The juvenile court caseworker can gO to the neighborhood association for in-depth information on a young boy or girl. They should be assisting citizens groups in the areas Of job-finding and employment possibilities. They should talk with neighborhood groups and set up contacts with the neighbor- hood association. Juvenile court should work with the 216 neighborhood association and problem youth. Together they can develop alternatives to the court process. Actual role. The juvenile courts are working with juvenile offenders to help them understand their problems and to cooperate with their parents. They also use other organizations in referrals; for example, the Skills Center program. Their caseloads are overcrowded and they only deal with the particular Offense. They need to develop more alternatives that involve the family. There are some volunteer probation Officers. Two members of the Department of SOOial Services expressed no Opinion in this matter. Alternatives suggested by the Department of Social Services as to what they think the juvenile court sees as possible Opportunities to assist an organized citizens , group (N.I.A.) in crime prevention are: estab- lish more group encounter programs where young people could discuss their problems; set up a cross-reference and referral service to jointly work on problems with other agencies; use more workers to spend time with families in certain situations; coordinate their services better between schools, courts, and neighbor- hood associations; and make more use Of the volunteer probation Officer concept. 217 The Department of Social Services: Legal Aid Role Ideal role. The Department Of Social Services personnel believe that the ideal role of Legal Aid in assisting citizens groups (N.I.A.) in crime prevention should be to give individual assistance when needed and not to dwell on financial status. To be a true community—based legal resource, they should go to the neighborhood association with their services. They should work with domestic cases and problem families, and coordinate with the neighborhood association committee who also works with problem families. They should be available for neighborhood sessions in housing matters and they should be available for consultation in housing situations. Legal Aid should inform various neighborhood groups of their rights in tenant-landlord situations, and be available for consultation and advice. A minority Of the Department of Social Services staff expressed the Opinion that Legal Aid actually comes after a problem situation has developed, and its role in crime prevention has therefore already been diminished. Actual role. Legal Aid is involved mainly in civil suits such as divorce cases which Often indirectly affect delinquency problems. It does take a long time to receive services from Legal Aid because they have 218 limited personnel and are forced to work on select problems. Alternatives suggested by the Department of Social Services as to what they think Legal Aid sees as possible Opportunities to assist organized citizens groups (N.I.A.) in crime prevention are: they see the solution as social, one of involving the community in problem solving; if they would receive funds for mOre staff, they would be able to help more people. They would like to have storefront Offices, be more involved with the Community Action Against Poverty programs and be more available to the poor people. They would like to spend one day a week in each neighborhood solving legal problems and be Open to any contacts that a neigh- borhood association has with problem families which could alleviate their case load. They would also like to be available to groups for talks and advice. The Department Of Social Services: The Police Role Ideal role. The Department of Social Services personnel are in agreement that the rOle Of the police in assisting citizens groups in crime prevention should be to uphold the law and treat everyone with equality and respect, and not willingly antagonize any segment of society. They should act more as arbitrators in settling 219 minor matters in order to prevent them from becoming major problems. Every situation should be treated with understanding and feeling. The police should have a professional attitude when interacting with citizens groups. They should create a better relationship with young people and be involved in school programs; they must know their community and the Offenders within it. They should be involved with community groups and go out to talk to groups in order to find areas in which police and citizens can assist one another. Police Officers can get to know a neighborhood through a neighborhood association and they can use the citizens as a resource in order to distinguish between the real problems and the other situations which arise. Avenues Of communi- cation would be Open. In certain situations, a moderate type of citizens patrol could be used. Actual rOle. The actual role Of the police in assisting citizens groups in crime prevention depends on the individual police Officer. Some Officers enjoy using and misusing authority but, in general, they are professional. They are involved in community education, especially in drug and safety programs and in educating school-age children to the police role. Unfortunately, they are Often so involved in the immediate problems that there is not enough time to develop good interaction 220 with the community. The juvenile bureau is involved in school and neighborhood groups trying to create a respect for the police and a good relationship with the community. There are some police-community relations teams. One-fourth of the Department of Social Services personnel interviewed felt that the police were doing virtually nothing to assist citizens groups in crime prevention. Alternatives suggested by the Department of Social Services as to what they think the police see as possible Opportunities to assist organized citizens groups in crime prevention are: see that other agencies follow up the cases referred by them; develOp more recreational programs; provide more job Opportunities, more training on how tO deal with peOple, more Of a crack-down on drugs, better street lighting, better security measures in business and home establishments; secure more information from particular neighborhoods; develop a form of citizens patrol but no vigilante concept; encourage more reporting of crimes and coopera- tion Of witnesses. 221 The Department Of SOcial Services: The Prosecu- tor's Office Role Ideal role. The Department of Social Services believes the ideal rOle of the prosecutor's Office in assisting citizens groups (N.I.A.) in crime prevention should be one that provides a consistent process Of justice. The prosecutor should set up alternatives to prosecution and should work with the legislature to help make the laws more uniform and consistent. He should inform the neighborhood associations of his role, and help them to understand their role when they file a complaint in a domestic situation. The neighborhood association should be used as a resource to help him know the atti- tudes and feelings of the community. The prosecutor should be available for complaints and follow through on the complaints, especially when they are expressed by a neighborhood group. One member of the Department Of Social Services believed that the prosecutor's office should not get involved in crime prevention in any way. Actual rOle. The prosecutor's Office is involved with the mechanics Of processing Offenders. He sees that the cases are brought to trial quickly. He is a form of standard bearer for the community to determine what Offenses will or will not be prosecuted. 222 A minority of the Department of Social Services staff stated that neighborhood associations do not receive much cooperation from the prosecutor's Office and there seems tO be a need for more communication. Alternatives suggested by the Department Of Social Services as to what they think the prosecutor's Office sees as possible Opportunities to assist citizens groups in crime prevention are: the setting up of a system where the community can air their feelings toward the criminal justice system; more community education, more consistent sentencing, more legal information and more speaking at neighborhood meetings by the prosecutor's Office. The Department of Social Services: The Public Defender's Role Ideal rOle. The Department of Social Services personnel believe that the ideal role of the public defender in assisting citizens groups in crime prevention should include involvement with community groups in order tO develOp resources and alternatives for their clients. They should contact neighborhood groups to find out if they can help them with a particular person in a certain neighborhood. The neighborhood association may know the particular family and its needs and be Of invaluable assistance. The public defender should be available to 223 individuals for specific help and advice. The public defender should talk with the neighborhood association personnel to help their client and to develop a plan for future action. Thirty-seven percent Of the Department Of Social Services personnel expressed no opinion on this tOpic. Actual rOle. The public defenders are looking out for the real interest of the family, but they are limited in what they can do. They have a need for more staff, and they do not have much contact with the commu- nity. A case is given to them from the court room; they work on it privately, and then handle it again in the court room. The Department of Social Services personnel were equally divided on the Opinion as to whether or not the public defender is doing anything to assist citizens groups in crime prevention. Alternatives suggested by the Department of Social Services personnel as tO what they think the public defender sees as possible Opportunities to assist organized citizens groups in crime prevention are: freeing the public defender from some Of his duties in order for him to be able to go out to neighborhood groups tO speak to them; develOping contacts with the community in order to assist his clients in the future; and making the public defenders more known through the media. 224 The Department Of Social Ser- vices: The Correctional Institution Role Ideal rOle. The Department Of Social Services personnel believe the ideal role of the correctional institution in assisting citizens groups in crime preven- tion should be to return the Offender to society rehabilitated by the use Of social and psychological means. They should make the person a functional member of the community. The correctional institution should have communication with the community and neighborhood groups and involve the offender in outside activities. They should use the citizens groups to help rehabilitate the Offender. They should use halfway houses to help integrate the inmate back into particular neighborhoods. The neighborhood association personnel can be used as volunteers and as full-time counselors to work with inmates and assist them in getting jobs in the commu- nity. They should provide public information on the nature Of the institution and the educational and vocational training and job possibilities available. Actual rOle. The correctional institution has communicated some through the press and formal meetings but they have not sufficiently communicated to the public the nature Of their institution. 225 Alternatives suggested by the Department Of Social Services as tO what they think the correctional institu- tion sees as possible Opportunities tO assist organized citizens groups in crime prevention are: developing rehabilitation alternatives; providing community resource programs tO help prepare the inmate for release; holding classes at the institution for both the inmate and poten- tial delinquents in the community; establishing better community education on corrections and the role Of the institution; using volunteers as resources for inmate programs; and helping develop job Opportunities by set- ting up committees to form employers lists to help find jobs for offenders. THE FORMER OFFENDER: A PROFILE Self Concept Ideal role. The role Of the former Offender in crime prevention should be Open to the particular indi- vidual’s readiness tO help society. Some former Offenders are able to help others by relating their experiences. They could also become involved in youth programs. Actual role. Training programs are needed to helptflmaentire person (educationally, vocationally and socially). Some Offenders have their minds set to 226 continue committing crimes, while others are ready tO change. After being in a correctional institution, it takes time for a person to get readjusted to society again. If someone listens to the former Offender, he feels he can help him by relating his experiences, but this can benefit another only if he is willing to listen and really wants to help himself. Ideal organized citizens role. There was total agreement that there is a need for organized citizens groups (N.I.A.) in working with the criminal justice system to prevent crime. They can promote neighborhood cohesion and healthy environmental interaction. Every member of the neighborhood should have a rOle'tO play. They can create programs to meet the needs Of the youth. Actual organized citizens role. There is a comprehensive drug program, Y.M.C.A. program, 4-H Exten- sion program, a learning center and community education projects. The overall Opinion of the former Offenders is that not much is being done by the citizens of Muskegon to prevent crime. Alternatives suggested by former Offenders to control and prevent crime are: the creation Of a citizens crime commission with branches in each business and neighborhood area, and the development of a compre- hensive youth program. 227 Alternatives suggested by former offenders as to what they think citizens groups (N.I.A.) see as possible Opportunities for preventing crime are: more employment Opportunities, more vocational training programs, more self-help projects, and more sharing Of information for the betterment of the entire neighborhood. The Former Offender: The Adult Court Role Ideal rOle. The former Offender believes that the ideal rOle of the adult court in assisting citizens groups in crime prevention should be to allow a court watcher to sit in the courtroom to make sure the court gives fair and just treatment to all peOple. The adult court should work with families having problems and the neighborhood associations could give information that may help the family. The neighborhood association normally knows the home conditions of an individual and can suggest ways and means to assist him. They could also work with the probation officer or parole Officer as sponsors. Recreation programs for inmates and young people could be developed and backed through the adult court. Actual role. There are individuals from the community who do volunteer to talk to the judge or the probation Officer in order to give an Opinion Of the 228 community attitude toward a particular individual. NO other relationship between the adult court and the citizens group was described. Alternatives suggested by the former Offenders as to what they think the adult court personnel see as possible Opportunities to assist organized citizens groups in crime prevention are: more work with families that have problems, more OOOperation with the Department of Social Services, more use Of the voluntary probation Officer concept, and the introduction Of a court watcher into the courtroom process. The Former Offender: The County Jail Role Ideal role. The former Offenders believe that the ideal rOle of the county jail in assisting citizens groups in crime prevention would be to involve them in their various programs. These include rehabilitation pro- grams, work release programs, education programs, group therapy, individual counseling and other related programs. Actual role. The rehabilitation program in the jail is using some citizen input but there is room for much improvement. Alternatives suggested by the former Offenders as to what they think the county jail personnel see as possible Opportunities to assist organized citizens 229 groups in crime prevention are: more involvement by the citizen and the neighborhood association in the county jail. The Former Offender: The Department Of Social Services Role Ideal role. The former offender believes that the ideal role Of the Department Of Social Services in assisting citizens groups in crime prevention should be that of working with neighborhood associations in order tO gain information about problem families which they could use to help these particular families. The Depart- ment Of Social Services could work on an individual level through their caseworkers and a team effort could be developed between neighborhood associations and the Department of Social Services. Actual role. The former Offenders interviewed did not know of any program in which the Department Of Social Services was working with neighborhood associ- ations to prevent crime. Alternatives suggested by the former Offenders as to what they think the Department Of Social Services sees as possible Opportunities to assist organized citizens groups in crime prevention are: working with the neighborhood association tO assist problem families in a particular neighborhood. 230 The Former Offender: The Juvenile Court Role Ideal role. The former Offender believes that the ideal rOle of the juvenile court in assisting citi- zens groups in crime prevention should be strong in assisting neighborhood associations because young peOple need more assistance than adults. The juvenile court should work with the parents in providing programs that promote constructive expression Of youth energy. These could include art classes, recreational and industrial activities and paid employment. It could also involve the volunteer probation Officer concept. Actual role. The former Offender believes that the juvenile court is not aesisting.the citizens group incrime prevention. They are losing the battle with the youth and are not making use Of the potential resources in the community. Alternatives suggested by the former Offenders as to what they think the juvenile court sees as possible Opportunities tO assist organized citizens groups in crime prevention are: working with the neighborhood associations and helping define and develop means to control young people; the neighborhood association can do what the juvenile court cannot do and together they may come up with some viable alternatives. 231 The Forme£_0ffender: The Legal Aid-Role Ideal role. The former offenders believe that the ideal rOle of Legal Aid in assisting citizens groups in crime prevention is to give legal advice and support neighborhood projects. Actual role. ‘The former Offenders did not know the exact assistance that Legal Aid is giving to the community at the present time. Alternatives suggested by the former Offenders as to what they think Legal Aid sees as possible Oppor- tunities to assist organized citizens groups in crime prevention are: to work with individual cases. The Former Offender: The Police Role Ideal role. The former Offender believes that the ideal rOle Of the police in assisting citizens groups in crime prevention is to work with citizens groups and have neighborhood policemen. There should be a sharing Of information and assistance in the apprehension Of the criminal. Early information on a particular person or youth can prevent trouble later. A form Of citizens patrol could be developed to assist the police and to help the neighborhood. The police could inform the neighborhood association if a particular party was being 232 belligerent or consistently in trouble and the neighbor- hood association could try to assist the individual. Actual role. The former Offender does not know of any actual role between the citizens groups and crime prevention and the police except the silent Observer program which they consider to be "snitching" or "turn- ing in your neighbor" for a crime. Alternatives suggested by the former Offender as to what they think the police see as possible Oppor- tunities to assist organized citizens groups in crime prevention are: working with citizens groups and hoping to gain cooperation and less militant reactions. The Former Offender: The Prosecutor's Office Role Ideal role. The former offender believes that the ideal role of the prosecutor's Office in assisting citizens groups in crime prevention should be one Of being accessible to the people, and willing to work with the neighborhood association for a particular individual. Actual role. The former offender believes that the actual rOle of the prosecutor’s Office in assisting citizens groups is one Of being willing to cooperate. Alternatives were not suggested by the former Offenders as to what the prosecutor's Office sees as 233 possible Opportunities to assist organized citizens groups in crime prevention. The Former Offender: The Public Defender‘s Role Ideal rOle. The former offenders believe that the ideal role of the public defender in assisting citi— zens groups in crime prevention should be using the neighborhood association as a resource in gaining valu— able information On an individual defendant. The public defender should work diligently for the best interest Of the individual. He can gain information on background and the needs of his defendant from the neighborhood association. A program or plan of rehabilitation could be developed to meet the individual's needs by the cooperation of the neighborhood association and the public defender. Actual role. The former Offenders believe that the public defender is doing a fast "rush job" and could know the person better if he would use the neighborhood association resource so that a better defense could be maintained. One former Offender stated that he did not like the public defenders and Obtained his own lawyer in order to receive a better defense. 234 Alternatives for the public defender to assist citizens groups in crime prevention were not offered by the former offenders. The Former Offender: The Correctional Instituef tion Role, Ideal role. The former Offenders believe that the ideal rOle of the correctional institution in assist- ing citizens groups in crime prevention should center around a rehabilitation program. This would involve training projects, educational and vocational programs, family visitations, and other areas where a neighbor- hOOd association would cOoperate and be assisted by the correctional institution. Actual role. The former Offenders believe that the correctional institution is Open to community-based programs but they did not have any personal experience with this type Of program while they were in an insti- tution. Alternatives were not offered by the former Offenders as to what they think the correctional insti- tution sees as possible Opportunities to assist an organized citizens group in crime prevention. 235 THE JUVENILE COURT: A PROFILE Self Concept Ideal role. The juvenile court personnel believe that their ideal role in crime prevention centers around one—to—One counseling, the use Of volunteers, and use of other community resources. Actual role. They believe that they are doing very little to prevent crime because most of their time is spent with the individual after the crime has been committed. They do have a limited volunteer program. Ideal organized citizens role. They are in agree- ment that there is a place for an organized citizens group (N.I.A.) in working with the criminal justice system to prevent crime. More responsibility should be given to the citizens in each individual neighborhood. Actual organized citizens role. Citizens are cooperating with existing programs in crime prevention but they are taking little initiative to accomplish any- thing on their own. Alternatives suggested by the juvenile court per— sonnel for citizens to control and prevent crime are: forming citizens committees to find out what should be done; developing places and programs for young peOple; 236 working more with the juvenile court personnel; developing educational programs for people of all ages; and initi— ating church and school programs to meet the needs Of the neighborhood. Alternatives suggested by juvenile court personnel as to what they think citizens groups see as possible Opportunities for preventing crime are: treating drug problem people as sick rather than criminal by placing them under the health department facilities; keeping up their homes, organizing "clean-up" weeks; developing work and recreational programs for the young; creating an attitudinal change in order to get more neighborhood cooperation and organization for self-help programs. The Juvenile Court: The Adult Court Role Ideal role. The juvenile court personnel believe that the ideal role Of the adult court in assisting citi- zens groups in crime prevention should be one Of working with the neighborhood associations tO know their clients, their families, and their neighborhood background better. They should work to serve the people and be just and fair tO all citizens. They should inform the judge con- cerning the attitude and feelings Of the community. They should help develop resources to help benefit indi- vidual peOple and direct these people to the resources 237 provided through the adult court. Job Opportunities can be developed, and the citizens group can help to integrate probationers and parolees back into their respective com- munities. The judges should set the tone for the image of the court. Actual rOle. The juvenile court personnel unani- mously state that the adult court is doing nothing to assist citizens groups in the area of crime prevention. They feel that the people are mistreated and that the adult court causes more problems than it solves. The adult court seems to make some racially prejudiced decisions and there are Often long delays in processing individual cases. They do not get involved enough with the citizens groups and they do not use volunteers. There is some work done in the community with the pre- sentence investigation and finding employment Opportunities. The judges seem to be politically moti- vated and they do not always communicate with the community nor do they always act for the benefit of the community. Alternatives suggested by the juvenile court as to what they think the adult court sees as possible Opportunities to assist an organized citizens group in crime prevention are: better organization Of the entire criminal justice system in Muskegon County, better 238 communication throughout this system, developing the concept of the court watcher, placing the citizen in on the hearings and having them go to the prOper people to initiate changes. There should be better communica- tion between the police, the citizen, and the adult court. The citizen should learn about the judicial system and have speakers come to their neighborhood association meetings. The probation Officer and parole iagent can also go into the neighborhood for the purpose Of develOping a neighborhood sponsorship program for the parolees or the probationers. They also suggest a better informed press with a more constructive approach and more in-depth reporting to educate the peOple. The Juvenile Court: The Coungy Jail Role Ideal role. The juvenile court personnel believe that the ideal role Of the county jail in assisting citi— zens groups in crime prevention centers arOund the rehabilitative programs, the volunteer work, and overall assistance Of the person in the jail by the neighborhood association. The county jail should use the community resources to assist in these rehabilitative programs. Citizens can serve as teachers and counselors. The con- cept Of the jail should be broadened to include more programs where citizens can become involved. 239 Actual role. The county jail does have a reha- bilitation program going and neighborhood association people meet with individuals from their neighborhood who are in jail. The educational program is also considered to be very good. The juvenile court personnel did believe that the major focus was still on security. Alternatives suggested by the juvenile court per- sonnel as to what they think the county jail sees as possible Opportunities tO assist an organized citizens group in crime prevention are: recreational facilities should be made available to the inmates and more activi- ties tO occupy the inmates time; initial contact and follow-through from a neighborhood association with a person who is in jail, and a follow-up after he has been released from jail; more use Of volunteers, and a broadened jail concept as to the use Of citizens groups in a volunteer capacity. The Juvenile Court: The Department Of Social Services Role Ideal role. The juvenile court personnel believe the ideal role Of the Department Of Social Services in assisting citizens groups in crime prevention would be to work with a person and his problems to gain a knowl- edge of his needs and thus better meet those needs. 240 Actual role. There is a divided Opinion among the juvenile court personnel as to what the Department Of Social Services is actually doing to assist citizens groups in crime prevention. One—half Of the personnel from juvenile court believe that the Department of Social Services is doing a good job of working with people in trouble. They appear to be a progressive group. The second Opinion among the juvenile court per- sonnel is that there should be more use of community resources and alternatives by the Department Of Social Services. They feel that there is poor communication between the juvenile court and the Department Of Social Services. Caseloads are overcrowded and therefore case- work itself is limited tO an impersonal process. A basic service is rendered but not much more. There are not many citizens groups working with the Department Of Social Services and not many suggestions are coming from citizens groups. Alternatives suggested by the juvenile court as to what they think the Department Of Social Services sees as possible Opportunities to assist an organized citizens group in crime prevention are all in the area Of more citizen input. The Department Of Social Services is Open and cooperative in looking for assistance from citizens groups. They could use more halfway homes, 241 group homes, and involved citizens groups in this type of neighborhood program. The neighborhood has to accept the problem family and work with them more, rather than just referring them to an agency. Tge Juvenile Court: The Former Offender Role’ Ideal role. The juvenile court personnel are in agreement that the ideal role of the former Offender in assisting citizens groups in crime prevention can be a very important one. He can be an excellent counselor to other Offenders and help prevent others from going through .the same. set Of problems he faced in the crim- inal justice system. He can work as a helping agent, an educational agent and a positive peer influence. Actual role. The juvenile court feels that the former Offender actually is assisting citizens groups in crime prevention through the drug centers and the volun- teer probation Officer concept. Alternatives suggested by the juvenile court as to what they think the former Offender sees as possible Opportunities to assist an organized citizens group in crime prevention are: working with groups of adults and juveniles tO help change attitudes, working for better employment possibilities, and working in educational programs. 242 The Juvenile Court: The Legal Aid Role Ideal role. The juvenile court personnel believe that the ideal role Of Legal Aid in assisting citizens groups in crime prevention is to refer people for legal advice to their Office. They should become involved with citizens groups and be available to them for legal information. They should have a neighborhood law center available in each particular neighborhood. Actual role. The juvenile court personnel are divided on what they believe the Legal Aid people are actually doing to assist citizens groups in crime preven- tion. One-half Of the juvenile court personnel believe. that Legal Aid is known in the community and peOple are making use Of these services. The other half of the juvenile court personnel believe that.legal services are not readily available in the neighborhoods and that the emphasis is on the letter Of the law and not the spirit Of the law. Alternatives suggested by the juvenile court as to what they think Legal Aid sees as possible Opportuni- ties to assist an organized citizens group in crime prevention are: making themselves available to people by going to the community centers, becoming involved with the citizens groups, working regular hours known by 243 the community, and assisting problem families known by the neighborhood associations. The Juvenile Court: The Police Role Ideal role. The juvenile court personnel believe that the ideal role of police in assisting citizens groups in crime prevention is to serve people's needs through good communication. The police should become aware and involved with the problems Of the community. The police should have hiring policies that would screen out individuals who have a tendency to become tOO violent. An in-service training program should help to keep the Officer up-to-date to meet the demands Of modern problems. Actual role. The juvenile court personnel are in agreement that the police are not dOing an adequate job Off assisting citizens groups in crime prevention. Communication depends upontflmaindividual Officers and many police Officers believe juvenile court is toosoft on the young peOple. The police do not appear to have any constructive programs going that involve the commu- nity. Alternatives suggested by the juvenile court as to what they think the police department sees as possible Opportunities to assist an organized citizens group in 244 crime prevention are: more work with the citizens and the probation Officers; better rapport with citizens and young people through more exposure to them; prOper. behavior and attitude; attending neighborhood associ- ation meetings; going back to the community-police Officer concept; allowing policeto do police work, not social work; no citizen patrol or similar citizen interference, because a vigilante concept is too possible in that type Of a situation. The Juvenile Court: The Prosecutor's Office Role Ideal role. The juvenile court personnel believe that the ideal rOle Of the prosecutor's Office in assist- ing citizens groups in crime prevention is to handle complaints, prosecute cases, and serve the community. They should process complaints with the neighborhood associations when possible, especially with problem families, tO try to develop a local solution process. They should be available to people and have an intake and screening process which allows them to prioritize their time. Actual role. The juvenile court personnel believe that the prosecutor's Office is not working with organized citizens groups on any type Of regular basis. The prosecutor by nature seems to be politically involved 245 .with individual cases. The community is not as aware of the prosecutor's role in the criminal justice system as it is Of the role Of other agencies. Alternatives suggested by the juvenile court as tO what they think the prosecutor's Office sees as pos- sible Opportunities to assist an organized citizens group in crime prevention are: fOrming more citizens groups and develOping better cooperation with them and the prosecutor's Office; developing a regular format for the neighborhood association peOple to work with the prose- cutor's office; educating the people to the role of the prosecutor; and having the prosecutor develop better screening and intake processes using neighborhood associ- ation input. The Juvenile Court: The Public Defender's Role Ideal role. The juvenile court personnel believe that the ideal role of the public defender in assisting citizens groups in crime prevention is to work with peo- ple to help them rather than just get them Off Of a particular charge, to defend those who cannot pay, and to give them the legal advice that is needed. Actual role. The juvenile court personnel are divided in their Opinion as to what the public defender's Office is doing to assist citizens groups in crime 246 prevention. The Opinion of one-half of the personnel is that they are available and that they try to assist the young person whenever possible. The other half feel that it is Often just a training process for new lawyers and that the people involved do not get good represen- tation. Alternatives suggested by the juvenile court as to what they think the public defender sees as possible Opportunities to assist an organized citizens group in crime prevention are: having a full-time public defender rather than part—time private attorneys, and having a neighborhood law center. The Juvenile Court: Cor- rectional Institution Role Ideal role. The juvenile court personnel believe that the ideal role Of the correctional institution in assisting citizens groups in crime prevention would be to work with the citizens groups and make use of their talent in the community and in the institution. Have them involved in their programs, especially in the reha- bilitation areas, educational programs, and employment potential programs. Actual role. The juvenile court personnel are in agreement that correctional institutions are not 247 preparing the citizens group for any real role in crime prevention. These citizens are fighting among themselves about the purpose of such an institution. Citizens are hostile to the idea Of a prison being in their community and the right concept toward a prison is needed. Alternatives suggested by the juvenile court persOnnel as to what they think the correctional insti- tution personnel see as possible Opportunities to assist organized citizens groups in crime prevention are: forming citizens groups to work with the institution. LEGAL AID: A PROFILE Self'Concept Ideal role. The Legal Aid personnel believe their ideal rOle in crime prevention is to make their legal services available to the people on a one-to-one basis and an overall community basis. This could be . accomplished through panel discussions and talks to community groups in order to create more of an awareness Of the law. Legal Aid should be involved with neighbor- hood groups directly and indirectly to help resolve community problems. Actual role. Legal Aid states that they are giving talks to various groups and working with neighbor- hood residents On an individual basis. 248 'Ideal organized citizens role. Legal Aid is in total agreement that there is a place for organized citizens groups in working with the criminal justice system to prevent crime. They state that there should be more neighborhood involvement especially in the areas of juvenile programs and police-community relations. Actual organized citizens role. Organized citi- zens in Muskegon are effective in certain areas in their efforts to prevent crime. They are very unsophisticated, however. They are working well in the drug abuse field, in preventing muggings and house burglaries. They are not effective in areas such as welfare frauds or petty shoplifting. There are gains being made in working with 'juvenile problems and family problems. Alternatives suggested by Legal Aid for citizens to control and prevent crime are: understanding and knowing the political problems in the criminal justice system, working on home improvements, developing effec- tive leadership, and developing better organization and programs in the community. Alternatives suggested by Legal Aid as to what they think citizens groups (N.I.A.) see as possible Opportunities for preventing crime are: forming a tenants group for renters, developing a welfare rights organization, working on better street lighting, working 249 for more minority representation in the police and fire departments, improving their economic and social status, and creating more recreational programs for the young. Legal Aid: The Adult Court Role ‘Ideal role. Legal Aid believes that the ideal role Of the adult court in assisting citizens groups in crime prevention should include contact and communica- tion between the judges, the probation Officers, parole agents, and the neighborhood association. This is par- ticularly true in the pre-sentence report. This should be an intimate role and link for the community. This should apply also to trial work, sentencing procedures, and probation. Legal Aid feels that a court watcher is not a good concept because there is too Often a chance Of a wrong interpretation on the part of the community person. The judge Often has to make his own decisions and it would be very easy for the community person to try tO second-guess him. Actual role. Legal Aid feels that the adult court is assisting citizens groups in crime prevention on an individual basis with most of the contacts taking place only in the courtroom itself. Citizens groups are Often seen in an adversary role and they are not relating well to the adult court. The probation reports are often 250 very narrow and do not indicate enough depth and under- standing Of the person and his community. Alternatives suggested by the Legal Aid personnel as to what they think the adult court sees as possible Opportunities to assist an organized citizens group in crime prevention are: talking to community grOups and alerting people to the role of the probation Officer and judge in the community, and establishing more communica— tion between the adult court and citizens groups. Lega£_Aid: The County Jail Role Ideal role. Legal Aid believes that the county jail role in assisting citizens groups in crime preven- tion is to involve them in the rehabilitation program for inmates at the county jail. AActual role. The Legal Aid personnel feel that there is some citizen involvement in the rehabilitation program in the county jail but the community is not well aware Of the rehabilitation program. Alternatives suggested by Legal Aid personnel as to what they think the county jail personnel see as pos- sible opportunities to assist an organized citizens group in crime prevention are: more work with the rehabilitation program and also more work with inmates and their families in the neighborhoods by citizens groups. 251 Legal Aid: The Department OTFSocial Services Role. Ideal role. Legal Aid personnel believe that the ideal rOle of the Department Of Social Services in assisting citizens groups in crime prevention should be one Of close contact with the neighborhood group, especially in the areas of child protective services and Old age assistance. Actual role. Legal Aid personnel believe the Department of Social Services does work out of community centers but that they have more Of an enforcement program rather than a helping program. They are Often seen as adversaries in the community. They are viewed as an Oppressor and there is resentment against the social worker. Alternatives suggested by Legal Aid personnel as to what they think the Department of Social Services sees as possible Opportunities to assist an organized citizens group in crime prevention are: more contact with neighborhood groups and community centers. Legal Aid: The Former Offender's Role Ideal rOle. Legal Aid believes that the ideal role Of former Offenders in assisting citizens groups in crime prevention is a limited involvement according to 252 each offender's capabilities and the assistance provided by the neighborhood group. Legal Aid feels that the former Offender needs more help than he is able to give to others. Actual role. Legal Aid did not express any first- hand knowledge On whether the former Offender was actually assisting any Of the citizens groups in crime prevention. Alternatives suggested by Legal Aid.as to what they think the former offender sees as possible Oppor- tunities to assist an organized citizens group in crime prevention are: working in training programs and realizing that a long rehabilitation process is still needed after they have been released. Legal Aid: The Juvenile Court Role Ideal role. Legal Aid personnel believe that the ideal role of the juvenile court in assisting citizens groups in crime prevention should be a matter Of close consultation between neighborhood associations and juvenile court, particularly with problem families and Problem neighborhoods. Actual role. The Legal Aid personnel believe that the juvenile court personnel are not assisting citizens groups in the area of crime prevention. 253 Alternatives suggested by the Legal Aid personnel as to what they think the juvenile court personnel see as possible Opportunities to assist an organized citizens group in crime prevention are: that the neighborhOOd associations gain the respect and trust of the court through their actions; that the neighborhood associations should begin to relate to the court better, understand the problems of a community better, and be more realistic in looking at family and neighborhood problems. Legal Aid: The Police Role Ideal role._ Legal Aid personnel believe that the ideal role Of the police in assisting citizens groups in crime prevention should be one Of communication between the police and the neighborhood association so that the police know the neighborhood situation and the neighbor-- hood associations know the police role. Actual role. Legal Aid personnel believe that there are efforts being made by the police to work with citizens groups but there is still an adverse situation existing and there is relatively little understanding between the police and the poverty area citizens. Alternatives suggested by Legal Aid personnel as to what they think the police see as possible Oppor- tunities tO assist an organized citizens group in crime 254 prevention are: providing lectures to the neighborhood association centers on the police role, encouraging more neighborhood people and minorities to work on the police force, and not encouraging citizen patrols. Legal Aid: The Prosecu- tor's Office Role Ideal role. Legal Aid feels that the ideal role of the prosecutor's office in assisting citizens groups in crime prevention should be one Of an open posture with the obligation to be available and known to the community. Actual role. Legal Aid personnel believe that the prosecutor's Office is Open to some communication but that, as yet, they do not have a good relationship with the citizens groups. They do not provide good services because they are overworked and have to deal with a racial polarization problem in the community. Alternatives suggested by Legal Aid personnel as to what they think the prosecutor's office sees as possible Opportunities to assist an organized citizens group in crime prevention are: that they make the role of the prosecutor's Office known to the public; that they develop better rapport with the community programs and community groups; and that they make more of an effort to communicate with other members of the criminal justice system. 255 Legal Aid: The Public Defender's Role Ideal rOle. Legal Aid believes that the ideal role Of the public defender in assisting citizens grOups in crime prevention should be one Of being available to the people for services needed and providing more informa- tion on the law and the role of the public defender in ,the community. They should also strive to gain the con- fidence Of the public. Actual role.. The public defenders are seen by the Legal Aid personnel as being totally inadequate. They believe they are giving second-class treatment to the defendants and that they are "state" lawyers. They con- sider them too close to the court and the prosecutor and they feel that a lack Of justice is rendered to the com- munity. Alternatives suggested by the Legal Aid personnel as to what they think the public defender sees as pos— sible opportunities to assist an organized Citizens group in crime prevention are: more full-time personnel to serve as public defenders and less tie-up with the court personnel. The public should have more of a selection role in who is to become a public defender. 256 Legal Aid: The Correc- tional Instituticn Role Ideal rOle. The Legal Aid personnel believe that the ideal role Of the correctional institution in assist- ing citizens groups in crime prevention should be involvement in many innovative programs to assist the inmate. Actual role. The Legal Aid personnel believe that the correctional institution is doing some publicity on the nature Of their institution but more information is needed for the community. Alternatives suggested by the Legal Aid personnel as to what they think the correctional institution per- sonnel see as possible opportunities to assist an organized citizens group are: more information on the nature of the type of institution and the role the citizen can play.' THE MUSKEGON POLICE: A PROFILE Self Concept Ideal role. The Muskegon Police see their ideal role in crime prevention centering around their juvenile bureau and the work that the police-community relations Officers do. They feel their presence on the street and at community events is a deterrent to crime. The majority 257 of the work in crime prevention occurs in the schools when they talk to children about the policeman's role. Ideally, they should work with the community and provide ‘the type of service that the community wants and needs. They should also be involved in recreational programs for the young and the adult. Actual role. The police believe that they are fulfilling their rOle in crime prevention by accomplish- ing the ideal role to some degree. They are active in the schools and in police-community relations. They realize that satisfying every citizen is a never-ending task at which. theycannot completely succeed in the eyes of the community. Ideal organized citizens role. The police unani- mously agree that there is a place for organized citizens groups in working with the criminal justice system to prevent crime. The neighborhood associations allow the police to get to know the young people and minimize problems before they are magnified. It is possible when a youth is getting into trouble, for the police to refer him to a neighborhood sponsor who works with him. It puts the responsibility on the neighborhood and the parents. Neighborhood associations can also supply information on a crime, accident, or similar problem. 258 Actual organized citizens rOle. Some neighbor- hood associations are providing school activities and recreational programs for the young. They are serving as hall monitors in the schools and are involved in Big Brothers and scouting with neighborhood groups. The neighborhood improvement associations are working with problem families and they are helping the juvenile bureau to identify and work with problem youth. Twenty percent Of the police Officers interviewed saw no real involvement in crime prevention by the citi- zens of Muskegon. Alternatives suggested by the police for citizens to control and prevent crime are: working toward a more integrated approach to problems; expanding neighborhood associations over the entire city; becoming more informed about the law; improving home conditions; working with school personnel; watching for problems and crime in individual neighborhoods; volunteering pertinent informa- tion; and employing the court watcher concept to try to expedite the court process. Alternatives suggested by the police as to what they think an organized citizens group considers as pos— 'sible Opportunities to assist in preventing crime are: building up a mutual trust with the city government, and involving young peOple through recreational activities Hand employment Opportunities. 259 The Police: The Adult Court Role Ideal rOle. The police believe that the ideal role Of the adult court in assisting citizens groups in crime prevention should include a court watcher concept where a citizen sits in the courtroom. The probation Officer should work with neighborhood improvement associ— ations to determine a plan for an individual citizen because neighborhood associations may have more immediate knowledge Of a particular citizen. The adult court should work with the neighborhood, especially with minor problems in a given neighborhood. The adult court should explain its position to the peOple and refer peOple to the neigh- borhood. People shouldlx:treated fairly by the adult court and first Offenders should be dealt with on a community level. One police member interviewed believes the adult court has nO real role in assisting citizens groups in crime prevention because he thinks it can Open the road to a facist state. Actual role. The police personnel believe that the adult court is not actually doing anything to assist citizens groups in the area of crime prevention. The adult court does have translators for people who speak a foreign language and the probation and parole agents work in the communities to some extent. 260 Alternatives suggested by the police as to what they think the adult court sees as possible Opportunities to assist an organized citizens group in crime prevention are: instructing the community on the criminal justice procedures in a courtroom process; inviting the citizen groups to sit in the courtroom to learn about the judicial system and then go back and talk about it in their neigh- borhoods; working with first offenders in the community; publicizing the court decisions and emphasizing the present legislation; working with the probation Officers and explaining the alternatives available for an indi- vidual citizen. The court could also explain its posi- tion to people and refer people to neighborhood groups for insight into their citizen reSponsibilities. The court should be as consistent as possible in working on an equal basis with the rich and the poor and the black and the white. The person who is chemically dependent should be treated until cured, rather than receiving a jail sentence. The Police: The County Jail Role Ideal role. The police believe that the ideal role of the county jail in assisting citizens groups in crime prevention should be one Of Open communication in gathering information on the background of a person from the neighborhood association, assisting in educational 261 programs, and seeking employment possibilities. The neighborhood association can work with the people in jail on their rehabilitation program and the county jail personnel could talk to outside groups about their role in the community. One-third of the police per- sonnel thought that there was nO role for the county jail to play in assisting citizens groups in crime prevention. Actual role. The police personnel felt that the county jail was actually assisting citizens groups in crime prevention through their rehabilitation program, especially in the area Of education and in the use of volunteers. The county jail personnel are also talking to various groups in order to educate the community. One-sixth of the police personnel thought that there was no actual assisting of citizens groups by the county jail personnel and that the county jail served simply as a holding faCility. Alternatives suggested by the police personnel as to what they think the county jail sees as possible Opportunities to assist an organized citizens group in crime prevention are: working in the rehabilitation program, allowing the community tO come in and see the jail, explaining the role Of a jail facility, and sepa- rating persons in jail by classification and age. 262 The Police: The Department of Social Services Role Ideal role. The police believe that the ideal rOle Of the Department Of Social Services in assisting citizens groups in crime prevention is working with the neighborhood associations to gather information that will be useful in assisting citizens and Obtaining knowlé edge Of problem families. They should also work with senior citizens, handle cases Of child abuse, and assist with welfare problems. _The Department Of Social Services can also use the neighborhood association peOple as volunteers. They should develOp a closer understanding between their services and neighborhood associations. Actual role. The police believe that the Depart- ment Of Social Services is actually assisting citizens groups in crime prevention by reSponding to people's needs in using information given to them by neighborhood associations. They are also informing people of certain benefits available to them, transporting peOple back and forth to the Department of Social Services Offices, and supplying guidance to problem families. They work with welfare recipients trying to find them employment and they do make use Of vOlunteers. Their caseloads are still too high and the use Of case aides is being employed. 263 One-third of the police personnel expressed no opinion on the actual performance Of the Department of Social Services to citizens groups. Alternatives suggested by police personnel as to what they think the Department of Social Services sees as possible Opportunities to assist an organized citizens group in crime prevention are: better communication . between the Department of Social Services and neighbor- hood associations and the employment of neighborhood. association people to work with the Department Of Social Services people; more use Of volunteers; more referrals to Various community agencies; and more work with keeping welfare recipients honest. The Police: The Former Offender Bole Ideal role. The police personnel believe that the ideal role Of the former Offender in assisting citizens groups in crime prevention is to develop a good attitude within himself and possibly work with troubled young peOple or with hard core adults. He can help other former Offenders stay out Of trouble and in the process stay out of trouble himself. He knows the consequences of illegal behavior and can give others the incentive to stay out Of trouble. 264 Actual role. The police personnel believe that the former Offender actually is assisting the citizen groups in crime prevention. He is working in the drug centers, the Skills. Training center, and the neigthr- hood improvement associations. One police Officer expressed the Opinion that there was no actual involve- ment Of the former Offender by citizen groups in crime prevention. Another police Officer expressed no Opinion in this matter. Alternatives suggested by the police personnel as to what they think the former Offender sees as possible Opportunities tO assist an organized citizens group in crime prevention are: former Offenders have knowledge Of the crime areas in the cities and the trouble spots and can assist in preventing crime in these areas; they can work with other former Offenders to keep them out of trouble. They can assist other former Offenders in seeking employment, work with young peOple, and help in schools as paraprofessionals. The Police: The Juvenile Court Role Ideal role. The police personnel believe that the ideal rOle of the juvenile court in assisting citizens groups in crime prevention should be: using the neigh- borhOOd association as a resource for information to help 265 the young people, using the neighborhood association peOple as volunteer probation officers, and employing paraprofessionals from the neighborhoods. The juvenile court could also OOOperate with neighborhood groups if there is a particular young person who is a problem in the community. The juvenile court could use the neigh- borhood peOple as sponsors, and as providers of foster homes. These citizens could be effective in following up on juveniles who have been in trouble. The police personnel were unanimous in their agreement that the juvenile court should be of assistance to citizens groups in crime prevention. Actual role. A majority Of the police personnel believe that the juvenile court is not doing anything to assist citizens groups in crime prevention. There appears to be conflict within the court itself between the judges and the probation Officers. They are not using neigh- borhood associations as a resource and young people are being given one chance after another. One-fifth Of the police personnel said that there is some activity between the juvenile court and the citizens groups but it is limited for the most part to parent—teacher association meetings in the schools. Alternatives suggested by the police personnel as to what they think the juvenile court sees as a 266 possible opportunity to assist an organized citizens group in crime prevention are: using the volunteer probatiOn Officer concept, using the neighborhood asso- ciations as a resource for information to help people working with the juveniles before they get tOO far in their delinquent behavior, working with citizens groups to develOp programs to help young people, talking with community leaders to see what can be done to help certain young peOple, and develOping more alternatives for young people. The Police: The Legal Aid Role Ideal role. The police personnel believe that the ideal role of Legal Aid in assisting citizens groups in crime prevention is to give citizens guidance and direction in law matters. They believe Legal Aid should also refer clients to other agencies when the need arises. They should protect the rights Of individual citizens and they should make their role known in the community. Actual role. One—half Of the police personnel expressed no Opinion on Legal Aid assisting citizens groups in crime prevention. One-third Of the police personnel interviewed stated that Legal Aid is assisting citizens groups in crime prevention; however, they feel that most Of their work is in civil matters. One member 267 of the police personnel interviewed believed that Legal Aid is actually doing nothing to assist citizens groups in crime prevention. Alternatives suggested by the police personnel as to what they think the Legal Aid personnel see as pos- sible Opportunities to assist an organized citizens group in crime prevention are: referring people to the proper agencies, defending problem cases, being available to the citizens, giving advice, helping people to know and respect the law, informing the community about the services of Legal Aid, working with the community leaders, and informing the schools on the role Of Legal Aid. The POlice: The Prosecu- tor's Office Role Ideal role. The police personnel believe that the ideal role of the prosecutor's Office in assisting citizens groups in crime prevention is to define their role and the legal process, and to assure the people of proper service. They should also use the neighborhood association groups to draw up a plan for a particular person in trouble. They should have close cOntact with the community to know the needs Of the community and, in turn, the community can get to know the prosecutor's rOle. The prosecutor should serve the people rather than the politicians. One-sixth of the police personnel 268 felt that there was no place for the prosecutor's Office to assist citizens groups in crime prevention. ‘Actual role. The majority of the police personnel felt that the prosecutor's Office was not doing anything to assist citizens groups in crime prevention. One-sixth Of the police personnel felt that the prosecutor's Office was assisting citizens groups by being available and cooperative. One police Officer expressed no Opinion on this matter. ' Alternatives suggested by the police personnel as to what they think the prosecutor's office sees as possible Opportunities to assist an organized citizens group in crime prevention are: employing an assistant black prosecutor, educating the community to the prose- cutor's role, using the neighborhood association as a resource, being available and ready to serve, giving fair treatment to all Offenders, and gaining the trust of the peOple by proper dissemination Of information. The Police: The Public Defenderrs Role Ideal role. The police personnel feel that the ideal role Of the public defender in assisting citizens groups in crime prevention is gathering proper informa- tion for a better defense of the client, being available for those who need them, and informing the clients Of the 269 legal ramifications of the law. Two members Of the police personnel interviewed felt there was no role for the public defender in assisting citizens groups in crime prevention. One police Officer expressed no Opinion in this matter. Actual rOle. The majority Of the police per— sonnel feel that the public defender is using the neighborhood associations for information and they are available for those who need them. One-third of the police personnel expressed no Opinion on this matter. One-sixth felt that the public defender was not doing anything to assist citizens groups in the area Of crime prevention. Alternatives suggested by the police personnel as to what they think the public defender sees as pos- sible opportunities to assist an organized citizens group in crime prevention are: explaining the public defender's role to the community, making the criminal justice process known to the citizens, and trying to be available for individual cases. The Police: The Correc- tional Institution Role Ideal role. The police personnel felt that the ideal role of the correctional institution in assisting 270 citizens groups in crime prevention should be to explain to them the role of the institution in the community and to use the neighborhood association personnel to assist in working with people in the institution. They shOuld use the community residents to prepare the individual in the institution for re-entry into the community. 'The neighborhood residents could also be used in the rehabili- tation programs within the institution. The institutional staff should continue to inform the community Of the achievement of goals and Objectives. The institutional staff should use neighborhood residents as tutors and as group discussion leaders. One police Officer stated that the correctional institution does not have a role in assisting citizens groups in crime prevention. Actual role. The majority of the police personnel expressed no Opinion on what the correctional institution is doing to prepare for using citizens groups in its actual program. One-fourth of the police personnel expressed the Opinion that the correctional institution is not informing the community of what rOle the citizen can play in the institution. One police Officer expressed the Opinion that the only actual work the correctional institution personnel are doing tO assist citizens groups is to provide employment for certain citizens. 271 Alternatives suggested by the police personnel as to what they think the correctional institution sees as possible opportunities to assist an organized citizens group in crime prevention are: being a source of employ- ment for residents; explaining the function Of their institution; employing citizens in the areas of rehabili- tation and vocational training; using community residents to help their clients readjust to a normal life; working with citizens groups to develOp employment possibilities; and inviting groups to visit the institution and see the facilities. .NELSON NEIGHBORHOOD IMPROVEMENT ASSOCIATION: A PROFILE Self Concept Ideal role. The members of the Nelson Neighbor- hood Association interviewed saw their role in crime prevention as: developing recreational programs ford peOple of all ages, seeking out employment Opportunities, working with problem families, cooperating with school personnel, redeveloping homes, establishing a healthy. neighborhood environment, dialoging on a constructive level with the police, watching each others' homes, show- ing concern for the Older citizens, preventing block busting, assisting peOple on probation or in jail by 272 keeping contact with them and their family, having a court watcher in the courtroom, making sure there is adequate legal defense for citizens and, in general, working with the formal members of the criminal justice system. Actual role. They have recreational programs for the young and social events for people Of all ages. There is a program in the association to promote job develOpment and there is a committee that works with problem families. The association works with the schools in the area. There is a neighborhood effort for home and lawn improvement and a certified housing program pro- vides home improvement loans and grants. A neighborhood effort is made to call the police when necessary and cooperate with them. There is some work with the county jail and the adult court on individual cases. Good cooperation exists between the association and the juvenile bureau Of the police department. They have limited contact with Legal Aid, the public defender, the prosecutor's Office, and the juvenile cOurt. The Nelson Neighborhood residents interviewed were unanimous in their agreement that there is a defi- nite place for an Organized group like N.I.A. in working with the criminal justice system to prevent crime. The majority felt that their association actually was accomplishing something in the area Of crime prevention. 273 One-fourth of the citizens interviewed expressed no Opinion on the actual role of the association regard- ing crime prevention. Alternatives suggested by the Nelson NeigthrhOOd Association for citizens controlling and preventing crime are: develOping recreational programs for people of all ages; allowing citizen involvement in the decisions made by city government which affect their neighborhood; paying citizens on a part- or full-time basis for their involvement in the N.I.A.; demanding better street light- ing; seeking a racial balance in the neighborhoods; promoting dances and social events for all ages; creating a citizen's patrol (black and white) to be available when needed; watching for abandoned houses that could become problem spots; watching each others' homes; preventing the increase of slum landlords; and working with citizens of the neighborhood who are on probation, parole, or in an‘institution. The Neighborhood Improvement Aesociation: The Adult Court Role Ideal role. The citizens from the neighborhood improvement association believe that the ideal role Of the adult court in assisting citizens groups in crime prevention is to use the volunteer probation officer con- cept and also have the probation Officer and parole agent 274 communicate with the neighborhood association about infor— mation on a particular person. The adult court personnel can also assist these citizens groups by helping create employment opportunities. They could allow the court watcher concept to be employed in the courtroom. The adult court personnel could work with the neighborhood association with problem peOple and could place the person under the jurisdiction Of a neighborhood sponsor. There could be some type Of a neighborhood court tO handle minor problems. Character references could be taken from neighborhood association people. The judges could come and talk to the neighborhood associations and inform them of the court's rOle in the community. The adult court also could use the neighborhood association programs as resources for their probationers. The neighborhood improvement association personnel were in agreement on these ideal roles Of the adult court. One citizen had nO Opinion on this matter. .Actual role. The neighborhood association per- sonnel were divided on the actual rOle of the adult court in assisting citizens groups in crime prevention. About forty percent had no Opinion on this matter. About twenty-five percent felt that the adult court was not doing anything to assist citizens groups in crime pre- vention. About thirty-five percent felt that the adult 275 court was actually doing something to assist citizens groups in crime prevention. Alternatives suggested by the neighborhood associ- ation personnel as to what they think the adult court sees as possible opportunities to assist an organized citizens group in crime prevention are: using the neighborhood association asra resource to gain informa- tion to assist in a fair and just court decision and plan for an offender. They also see a role in obtaining employment for certain members of the community. The Neighborhood Improvement Association: The County Jail Role Ideal role. The neighborhood improvement asso- ciation personnel see the ideal role Of the county jail personnel in assisting citizens groups in crime preven- tion as one of working with the people in the jail by using neighborhood association personnel as resource peOple. They also can work with peOple after they have been out by helping them find jobs and continuing to work in a counseling capacity. Actual rOle. The neighborhood improvement asso- ciation personnel are divided on their feelings about the county jail's actual assistance to citizens groups in crime prevention. Forty percent Of the citizens 276 interviewed had no Opinion on this matter. Another forty percent Of the citizens interviewed felt that the county jail was actually doing nothing to assist citizens groups in crime prevention. Twenty percent of the citizens interviewed felt that the county jail actually is doing something to assist citizens groups in crime prevention. This involvement is centered around one-to-one situations where a community representative works with an individual in the county rehabilitation program. Alternatives suggested by the neighborhood improvement association personnel as to what they think the county jail sees as possible Opportunities to assist an organized citizens group in crime prevention are: employing citizens in the detoxification center, drug center, and in handling young adults; involvement Of the neighborhood association people in the total rehabilita- tion program in the county jail and using neighborhood association personnel to determine a plan for a particular person in the county jail. The Neighborhood Improvement Association: The Department g£_Social Services Role Ideal role. The neighborhood improvement associ- ation personnel believe that the ideal rOle of the Department Of Social Services in assisting citizens groups in crime prevention should be one Of working closely with 277 the neigthrhood groups with problem families. This would involve using the neighborhood association per- sonnel to work with a caseworker to better assist a particular neighbor and the professional could help- with his problems in other related areas. The neighbor- hood improvement association personnel were in total agreement on this concept. Actual rOle. The neighborhood improvement association personnel believe that the Department of Social Services is actually assisting citizens groups in crime prevention by accepting referrals from the neigh- borhood association and working with the problem family committee. Thirty-five percent of the neighborhood improvement association personnel interviewed felt that the Department Of Social Services was actually doing nothing to assist citizens groups in crime prevention. Twenty percent of the neighborhood improvement associ- ation personnel interviewed expressed. no Opinion on this matter. Alternatives suggested by the neighborhood improvement association personnel as to what they think the Department of Social Services sees as possible Oppor- tunities to assist an organized citizens group in crime prevention are: working with the neighborhood improve- ment association to find employment for hard-to-place 278 clients and using the neighborhood improvement association personnel as resources for information on people to give greater assistance to a particular individual. The Neighborhood Improvement Association: The Former Offender Role Ideal role. The neighborhood improvement associ- ation is in agreement that the ideal role Of the former Offender in assisting citizens groups in crime prevention should be in working with the association on various pro- grams tO assist especially the younger members Of the community and to work for better job Opportunities. They can assist other former Offenders by trying to keep them from going into their same negative pattern, and the neighborhood association can continue to give the former Offender support in his efforts tO avoid his past behavior. Actual role. The neighborhood improvement associ- ation personnel believe that the former Offender is actually assisting citizens groups in crime prevention by working with the youth programs, church programs, and drug center programs. Fifteen percent of the residents interviewed felt that the former Offender was doing nothing in assisting citizens groups in crime prevention. One citizen had no Opinion on this matter. 279 Alternatives suggested by the neighborhood improvement association personnel as to what they think the former Offender sees as possible Opportunities to assist an organized citizens group in crime prevention are: working with youth programs, finding employment for other former Offenders, working with young adults, and assisting in other neighborhood programs. The Neighborhood Improvement Association: The Juvenile Court Role Ideal role. The neighborhood improvement associ- ation personnel believe that the ideal role Of the juvenile court in assisting citizens groups in crime prevention should center around working with the neigh- borhood association with problem youth to help control their antisocial behavior. They should employ the volun- teer probation Officer and the probation sponsor concepts. They should work with the association in contacting prob- lem families to prevent future problems, and should work with the schools and the neighborhood associations. The neighborhood improvement association personnel were in unanimous agreement on this subject. Actual rOle. The majority Of the citizens inter- viewed felt the juvenile court was actually doing something to assist the citizens groups in crime 280 prevention. This centered around working with particular families and using a halfway house concept in the neigh- borhood. Approximately twenty percent Of the residents interviewed felt that there was no assistance given to citizens groups from the juvenile court personnel. Approximately twenty percent of the neighborhood associ- ation personnel had no opinion on this subject. Alternatives suggested by the neighborhood association personnel as to what they think the juvenile court sees as possible Opportunities to assist an orga- nized citizens group in crime prevention are: paying neighborhood residents to work with young people who are having problems, making use of volunteers in various capacities for juvenile court personnel, and working with Ineighborhood improvement association personnel. The Neighborhood Improvement Association: Legal Aid Role Ideal role. The neighborhood improvement associ- ation personnel believe that the ideal role of the Legal Aid personnel in assisting citizens group in crime pre- vention should be to work with particular citizens who have legal difficulties. They should inform people of the legal ramifications on community matters. They should give talks to community groups to explain their role. They should be available and easily accessible to 281 community citizens. They should refer problem families to neighborhood associations. Approximately twenty—seven percent of the residents interviewed had no Opinion on Legal Aid's ideal role. Actual role. The majority Of the residents interviewed regarding Legal Aid assisting citizens groups in crime prevention had no opinion. Approximately‘ twenty-seven percent Of the residents interviewed felt that Legal Aid is doing something to assist citizens groups in crime prevention. This work revolves around property problems, divorce cases and fatherless families. One resident said that Legal Aid is not extending itself into the community, but if the citizens want assistance they have to gO tO the Legal Aid Offices. Alternatives suggested by the neighborhood improvement association personnel as to what they think that Legal Aid sees as possible Opportunities to assist an organized citizens group in crime prevention are: to work with the neighborhood association and refer peOple to one another, to make their services more known through a neighborhood association, and to use individual members Of the neighborhood association as resource peOple. 282 The Neighborhood Improvement Association: The Police Role Ideal role. The neighborhood improvement associ- ation personnel are in total agreement that the ideal role of the police in assisting citizens groups in crime prevention should be one Of working with them, especially in juvenile matters, by becoming involved in school programs, recreational programs, and community activities. They should assist by involving a citizens patrol or auxiliary police walking a neighborhood beat, working with neighborhood associations in matters of crime reporting and Obtaining witnesses, attending neigh- borhood association meetings, and using neighborhood association personnel as contacts in particular problems. Actual role. The neighborhood improvement association personnel believe that the police department actually is assisting citizens groups in crime preven- tion, especially in their juvenile bureau and in their police—community relations teams. They believe that the police reSponse time is very good except in a few minor situations. One citizen had no Opinion on this matter. Alternatives suggested by the neighborhood improvement association personnel as to what they think the police personnel see as possible Opportunities tO assist an organized citizens group in crime prevention 283 are: working with problem youths, working with the association in problem areas, develOping mutual respect, working in school programs and drug programs, working with pre-delinquent young people, and developing a rapport with the neighborhood associations. The Neighborhood Improvement Association: The Prosecu- tor’s Office Role Ideal role. The neighborhood improvement associ- ation personnel believe that the ideal role Of the prosecutor's office in assisting citizens groups.in.crime prevention should be one of informing the neighborhood about a particular problem, and allowing the neighborhood improvement association to inform the prosecutor's Office on the atmosphere of a local neighborhood. The prosecu- tor's Office should be equal in its treatment of all people. They could come to neighborhood meetings to explain their role and dialog with the people. They could use citizens groups in their investigations of particular crimes. Approximately twenty-seven percent Of residents interviewed expressed no Opinion in rela- tionship to the prosecutor's Office. Actual role. The majority Of the citizens inter- viewed did not express an Opinion as to the prosecutor's actual involvement in assisting citizens groups in crime 284 prevention. Approximately twenty percent Of the residents interviewed felt that the prosecutor's office was actually doing nothing to assist citizens groups in crime preven- tion. One resident felt that there was contact between a neighborhood association and the prosecutor's office. Alternatives suggested by the neighborhood improvement association personnel as to what they think the prosecutor's Office sees as possible Opportunities to assist an organized citizens group in crime prevention are: communicating on particular crimes and sharing information after a trial. The Neighborhood Improvement Association: The Public Defender's Role Ideal role. The neighborhood improvement associ— ation personnel believe the ideal role Of the public defender in assisting citizens groups in crime prevention is to use neighborhood improvement associations for char- acter references on particular neighborhood individuals. They should also be aware of public Opinion and community feelings and should Obtain character witnesses from the neighborhood improvement association. They should come out to talk to the neighborhood improvement association to Obtain information about their client in order to give prOper representation and not misrepresentation. 285 They should come to the neighborhood improvement associ— ation meetings and inform the groups about the public defender's role. One member of the community expressed no Opinion on the public defender's rOle. Actual role. The majority Of neighborhood improvement association personnel expressed no Opinion on what the public defender is actually doing to assist citizens groups in crime prevention. Twenty-seven percent stated that the public defender was doing nothing to assist the citizens groups in crime prevention. Twenty percent of the neighborhood association personnel believed that the public defender actually was working with citizens groupsimucrime prevention areas. Alternatives suggested by the neighborhood improvement association personnel as to what they think the public defender sees as possible Opportunities to assist an organized citizens group in crime prevention are: taking the initiative from the neighborhood groups to work with them and obtaining character references from the neighborhood association personnel. $29 Neighborhood Improvement Aesociation: The Correc- tional Institution Role Ideal role. The neighborhood improvement associ- ation personnel believe that the ideal rOle of the 286 correctional institution in assisting citizens groups in crime prevention should be one of using the neighborhood improvement association personnel for recreational programs and rehabilitation programs within the insti— tution, and working with families outside the institution who have members in the institution. The correctional institution could get involved in community programs to help gain the support of the community for their institution. They could work with the neighborhood pro- grams in developing job Opportunities so that when an individual comes out Of the institution he has a skill and a place of employment. The correctional institution could also allow neighborhood associations to bring groups out to visit the institution. Correctional institution personnel could also inform the community people Of the place of a correctional institution in the criminal justice system. Actual role. The majority Of the citizens inter- viewed believed the correctional institution is assisting citizens groups in crime prevention through communication about their program in the paper and various meetings throughout the community. Approximately twenty—seven percent Of the community residents felt that nothing is being done to inform them or involve them in the correc- tional facilities program. One resident expressed no Opinion on this matter. 287 Alternatives suggested by the neighborhood improvement association personnel as to what they think the correctional institution sees as possible Oppor- tunities to assist an organized citizens group in crime prevention are: developing training programs for future personnel in the institution; providing job Opportunities for citizens in the community; Offering a rOle for the community to play in the correctional institution; having meetings to involve various people in the insti- tution's policy; and allowing certain groups of young people to visit the institution as a form of preventive technique. THE PRESENT OFFENDER: A PROFILE Ideal organized citizens role. The present Offenders interviewed believed that there is a definite place for an organized citizens group in working with the criminal justice system to prevent crime. They saw such a group as providing activities for the neighbor- hood, job Opportunities, youth programs, assisting the uneducated in living problems, stopping the buying and selling of stolen goods, closing down trouble spots, curbing drug traffic and improving the physical appear- ance of a neighborhood. Actual organized citizens role. Sixty percent of the present Offenders state that the organized groups 288 are working in the drug programs, community centers, Y.M.C.A. programs, Community Action Against Poverty and other programs. Forty percent of the present Offenders expreSsed no Opinion on this subject. Alternatives suggested by the present offender for citizens to control and prevent crime are: seeking employment for young people, making programs available tO occupy young peOples' time, and watching each others' homes. Alternatives suggested by the present Offender as to what they think an.organized citizens group con- siders as possible Opportunities to assist in preventing crime are: having young people understand the conse- quences of their behavior, giving young people opportunities to create their own entertainment, and counteracting negative peer influence. The Present Offender: The Adult Court Role Ideal role. The present Offender believes that the ideal role Of the adult court in assisting citizens groups in crime prevention should provide a means of communication between the court and the people and good representation in the courtroom of various community minorities. The neighborhood associations could attend 289 a given trial to make sure that the individual is given a fair and just verdict. The neighborhood association could work with the adult court to help them understand and know the people involved better so that a prOper sentence or disposition can be given. They could also work with the probation Officer and help the probationer. The adult court should listen to the neighborhood improve- ment association representative about a particular person in trouble and his standing in the neighborhood. The jury should have black representatives, especially when a black person is on trial. The probation Officer can also use the neighborhood improvement association personnel for his pre-sentence investigation. The adult court should also involve the neighborhood improvement association in work with certain individuals such as alcoholics or neighborhood problem families. The adult court could also assist citizens groups in crime pre- vention by Opening up employment possibilities for people on probation. They should also have adult court person- nel available to talk to citizens groups. Actual role. Sixty percent Of the present Offenders interviewed felt that the adult court was not actually doing anything to assist citizens groups in crime prevention. Forty percent expressed no Opinion in this matter. One present Offender felt that the 290 court process was run by the judge like a dictator. He claimed he was unaware of the court process and its ramifications. He felt it was a railroading situation. His bond was posted by a neighborhood community center. Alternatives suggested by the present Offender as to what he thinks the adult court sees as possible Opportunities to assist an organized citizens group in crime prevention are: to have adult court personnel discuss the needs of individuals on probation with the neighborhood improvement association personnel. The Present Offender: The Countngail Role Ideal role. The present offenders believe that the ideal role of the county jail in assisting citizens groups in crime prevention should be one of involving these citizens in rehabilitation programs to help the Offender. The county jail should contact the neighbor- hood associations to assist the inmates so that they can keep in touch with their families and have their needs met. The county jail should also allow the citi- zens group to help with the release programs. Citizens could be allowed to come in to visit and conduct sewing classes and adult education classes for the women in prison. They could also bring in library supplies. (__ _ ’ _ -. . Hw-s—‘M' " 291 Actual role. Sixty percent of the present Offenders interviewed felt that the county jail was actually doing nothing to assist citizens groups in crime prevention. They expressed the Opinion that the guards were running the show and that they did not think the security staff would allow any real citizen involvement. Forty percent Of the inmates said that there was some actual contact between the county jail personnel and the citizen groups. This took place in the drug therapy programs, the educational programs and the church services. Alternatives suggested by the present Offenders as to what they think the county jail personnel see as possible Opportunities to assist an organized citizens group in crime prevention are: developing job Oppor- tunities, assisting in the work release program and the drug rehabilitation program, being aware of the racial tension, helping overcome the language barrier (Spanish speaking people) and helping develOp educational and vocational training. Tee Present Offender: The Department of Social Services Role Ideal role. The present Offender believes that the ideal role Of the Department of Social Services in assisting citizens groups in crime prevention should be 292 one of making programs available to young people in trouble and using neighborhood associations as a resource. ' They should help maintain a program once it has been started. They should work with problem families and help the unemployed gain jobs. They should help the families having problems financing their budget. Actual role. The present Offender believes that the Department Of Social Services is actually assisting citizens groups in crime prevention by working with problem families. One of the present Offenders had no Opinion on this matter. Alternatives suggested by the present Offender as to what they think the Department of Social Services sees as possible Opportunities to assist an organized citizens group (N.I.A.) in crime prevention are: working with the neighborhood associations with problem young peOple, and assisting the unemployed in gaining employ- ment. The Present Offender: The Former Offender Role Ideal role. The present Offender is in total agreement that the ideal role of the former Offender in assisting citizens groups in crime prevention is to work with groups and use the former experience as a deterrent to crime. Certain goals could be set and programs 293 develOped. Former Offenders could encourage the young people to stay in school and help them gain employment. In return, the neighborhood association could help the former Offender overcome his stigma, help him find a home and allow him to help other former Offenders. Actual rOle. The present offender believes that the former Offender actually is assisting citizens groups in crime prevention by working at the drug center and the Urban League and other neighborhood programs. He believes that some former Offenders are not ready to listen to any Of this type of discussion. One of the present offenders did not express an opinion on this matter. Alternatives suggested by the present Offenders as to what they think the former Offender sees as possible Opportunities to assist an organized citizens group (N.I.A.) in crime prevention are: working with groups and using former experience as a deterrent to crime, encouraging drop-outs to return to school, working with young peOple, working at the drug center and similar programs, and working with other former Offenders. The Present Offender: The geyenile Court Role Ideal rOle. The present Offender believes that the ideal role of the juvenile court in assisting 294 citizens groups in crime prevention should be one of working with the neighborhood associations to help develop programs for young people to prevent crime and working with the families Of young people who are getting into trouble.. The juvenile court should work with the neighborhood to help organize clubs to keep young people occupied. Aetual role, The present Offender believes that the juvenile court is not doing anything to assist citizens groups in crime prevention.— ATternative§_suggested by the present Offender as to what they think the juvenile court personnel see as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: helping to develop jobs for young people, organizing programs for young people and working with families in trouble. The Present Offender: hegal Aid Role Ideal role. The present Offender believes that the ideal role Of Legal Aid in assisting citizens groups in crime prevention should be one Of helping people Obtain proper legal advice and assistance in their claims. Actual role. The present Offender believes that Legal Aid is not assisting citizens groups in crime 295 prevention because they are not that well known in the community. Alternatives suggested by the present Offender as to what they think the Legal Aid personnel see as possible opportunities to assist citizens groups (N.I.A.) in crime prevention are: informing the people about the availa- bility Of legal services. The Present Offender: The Police Role Ideal role. The present offender is in total agreement that the ideal role Of the police in assisting citizens groups in crime prevention should be one of communicating to each other the needs and feelings of a given neighborhood. They should work with neighborhood associations to help create a better atmosphere in a given neighborhood and they could use citizens patrols in problem areas. The police should talk to responsible citizens in a given neighborhood before any drastic action has to be taken. The neighborhood should under— stand the police needs and the police should understand the neighborhood needs. Actual role. The present Offender believes that the police actually are doing very little to assist citizens groups in crime prevention. They state that the police are down on long-haired students and minority 296 peOple. They are Often looking for trouble where there may not be any problem. They state that the police are often bitter and start out with a very poor attitude as if they are looking for someone to pick on; however, this depends on the individual police officer. The overall Opinion Of the present Offenders is that the police are not too Open to communication. One Of the present Offenders expressed no Opinion on the police. Alternatives suggested by the present Offender as to what they think the police personnel see as possi- ble Opportunities to assist citizens groups in crime prevention are: coming to talk to the neighborhood groups, explaining the present laws of the city, and receiving support from responsible citizens. The Present Offender: The Prosecutor's Office Role Ideal role. The present Offender is in total agreement that the ideal role of the prosecutor's office in assisting citizens groups in crime prevention should be one of listening to the citizens groups regarding specific cases and insuring justice and fair treatment in each case. They should visit the community group to find out what type Of cases are important to them. Actual role. The present Offender believes that the prosecutor's Office is not actually doing anything to 297 asSist citizens groups in crime prevention. They believe that Often the prosecutor's Office is politically motiva- ted Or else they go through a normal impersonal routine on any given case. 1 Alternatives suggested by the present offender as to what they think the prosecutor's Office sees as possi- ble Opportunities to assist citizens groups in crime prevention are: working more thoroughly on the investi- gation Of certain complaints. The Present Offender: The Public Defender's Role Ideal rOle. The present Offender is in total agreement that the ideal role of the public defender in assisting citizens groups in crime prevention should be one Of making contact with the neighborhood groups and learning about a particular person, his background, reason for his arrest and possible plan for the future. He should advise the person Of his rights, and make sure the person gets a fair trial, a prOper defense, and if he is found guilty, an individual plan be developed that will have rehabilitative aspects. Actual role. The present Offender is in total agreement that the public defender actually is doing nothing to assist citizens groups in crime prevention. They complain that Often the public defender has a very 298 poor attitude and they try to encourage the individual to plead guilty on all counts. They complain that the lawyer is soon gone after the hearing and that there is very little time for discussion after the case. Alternatives suggested by the present offender as to what they think the public defender sees as pos- sible opportunities to assist citizens groups (N.I.A.) in crime prevention are: working with neighborhood associations to Obtain information as to what is best for a particular client from the community's point Of View. The Present Offender: The Correctional Institution's Role Ideal role. The present Offenders are in total agreement that the ideal role Of the correctional insti- tution in assisting citizens groups in crime prevention should be one of working with them from the beginning to develop programs for inmates and training for personnel in the rehabilitation program. Citizens should know what kind Of programs the institution is planning so that they can be included in helping in the prison in what- ever capacity they can. The correctional institution should work with the neighborhood associations to keep contact between the neighborhood and the inmates. 299 Actual role. The present Offenders do not undere stand exactly the role Of the new institution in Muskegon, but from their experience in the past, there has been very little done by the institutions with community groups. They state that younger peOple should be kept out of secure prisons like Jackson and that the majority Of people in prison are very poor peOple, economically speaking. Alternatives suggested by the present Offenders as to what they think the correctional institution per- sonnel see as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: they stated that they did not know the intentions of the correctional institution but that they hoped there was a place for neighborhood association groups to work in the insti- tution with the inmates. THE PROSECUTOR’S OFFICE: A PROFILE Self Concept Ideal role. The prosecutor's Office personnel believe their ideal role in crime prevention is to pre- vent recidivism through their contact with clients, identifying community problems and manpower needs, using the community resources for pre-trial diversion, being available for peOple's needs and participating in com- munity projects. 300 Actual role. The prosecutor's office personnel believe that they are accomplishing their ideal role but to a limited degree because they are handicapped by their small number Of staff, the large number Of cases they have to handle, and the relatively short time they have been in Office. Ideal organized citizens role. The prosecutor's office believes that there is a place for organized citi- zens groups in working with the criminal justice system to prevent crime. This is particularly true in the use Of citizens as volunteer probation Officers and in working with particular problems in the community, especially with young people. Actual organized citizens rOle. The prosecu- tor's Office does not see much effort being made by any citizens groups in the area Of crime prevention. Alternatives suggested by the prosecutor's Office for citizens to control and prevent crime are: using selected families to help other families with prob- lems, assisting in educational and recreational programs and having speakers come to their meetings to talk on various criminal justice functions. Alternatives suggested by the prosecutor's Office as tO what they think an organized citizens group considers as possible Opportunities to assist in 301 preventing crime are: bringing minority people in the mainstream Of society and more community involvement with juvenile problems, especially the young person who is developing a definite pattern of delinquency. The Prosecutor's Office: The Adult Court Role Ideal role. The prosecutor's Office is in total agreement that the ideal role Of the adult court per- sonnel in assisting citizens groups in crime prevention should be one Of using voluntary probation Officers from the community to talk to the judge about certain citi- zens, plan for their future and divert many of the minor violators from the court process itself. They stated that a court watcher from the community might be a con- ceivable idea but it is very difficult for the average citizen to know the terminology of the courtroom. Actual role. The prosecutor's Office was in total agreement that the adult court is not carrying out its role in working with citizens groups in crime preven- tion. They state that the court is understaffed and that the community is not that involved. Alternatives suggested by the prosecutor's Office as to what they think the adult court personnel see as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: using probation and .302 citizen sponsors rather than placing a person in jail, working with each individual for his own particular plan, and trying to Open up the system to involve the citizen more. The Prosecutor's Office: The County Jail Role Ideal role. The prosecutor's Office is in agree- ment that the ideal role Of the county jail personnel in assisting citizens groups in crime prevention should be one Of involving them in their rehabilitation program and working with the individual citizens who are staying in the county jail. Former Offenders can be involved in neighborhood association programs. Actual role. The prosecutor's Office stated that they did not know what the countyjail was actually doing to assist citizens groups in crime prevention. Alternatives suggested by the prosecutor's Office as to what they think the county jail personnel see as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: using them in the Skills Training Center, educational programs, vocational reha-H bilitation, work release programs, and other areas where the association people could be effective in a jail program. 303 The Prosecutor's Office: The Department Of Social Services Role Ideal role. The prosecutor's Office is in total agreement that the ideal rOle Of the Department of Social Services in assisting citizens groups in crime preven- tion should be one of working with protective services in the neighborhood associations with neglected and delinquent children. They should avoid the life cycle that brings persons from juvenile Offenses to adult offenses. They should use the neighborhood association as a resource and direct problem people into neighborhood associations. Actual role. The prosecutor's Office believes that the Department of Social Services personnel are working to some extent to assist citizens groups in crime prevention on an individual basis. Alternatives suggested by the prosecutor's Office as to what they think the Department Of Social Services sees as possible opportunities to assist citizens groups (N.I.A.) in crime prevention are: working with problem families before they have deteriorated so far that it is difficult for them to help themselves, working with juveniles to help them from falling into negative pat- terns, and giving help in educational areas for problem families. 304 The Prosecutor's Office: The Former Offender Role Ideal role. The prosecutor's Office is in total agreement that the ideal rOle Of the former Offender in assisting citizens groups in crime prevention should be one of talking and influencing others to avoid their same mistakes, working with people who have drug problems land, in the process, helping themselves. Actual role. The prosecutor's Office is in agreement that the fOrmer Offender actually is assisting citizens groups in crime prevention, especially in the drug center, seminars for parents, in speaking about their prison life, and in working on educational programs. Alternatives suggested by the prosecutor's per— sonnel as to what they think the former Offender sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: trying to increase his chances for employment,trying to keep himself out Of trOuble, and trying to have a better image Of himself. The Prosecutor's Office: The Juveniie Court Role Ideal role. The prosecutor's Office is in total agreement that the ideal role of the juvenile court in assisting citizens groups in crime prevention is to use the neighborhood association as a resource both in the 305 area of Big Brothers and Big Sisters, and the volunteer probation officer rOle. They should also be involved in athletic programs and other recreational programs. Actual role. The prosecutor's Office states that it does not know whether the juvenile court is actually assisting citizens groups in the area of crime preven- tion. Alternatives suggested by the prosecutor's Office as to what they think the juvenile court per- sonnel see as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: using neigh- borhood associations as a resource, both for information and voluntary probation Officer roles, and using neigh- borhood association people to work in community-based residential facilities. The Prosecutor's Office: The Legal Aid Role Ideal role. The prosecutor's Office is in total agreement that the ideal rOle of Legal Aid in assisting citizens groups in crime prevention should be one Of representing the indigent, using the neighbor- hood association personnel as a resource in processing, complaints Of residents and informing people Of their rights. 306 Actual rOle. The prosecutor's Office feels that Legal Aid is not always assisting citizens groups in crime prevention. They Often lose sight Of their goals and become involved in issues and causes. Alternatives suggested by the prosecutor's Office as to what they think Legal Aid sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: going out to talk to groups about their rights and assembling information about Legal Aid which could be made available to neighborhood associ- ations. The Prosecutor's Office: The Police Role Ideal role. The prosecutor's Office is in total agreement that the ideal role Of the police department in assisting citizens groups in crime prevention should be one of working with the citizen groups in the areas of juvenile Offenders, the silent Observer program, and chemically dependent individuals. Most nonViOlent clients could be handled on the neighborhood level through cooperation between the police and the neighborhood associations. They do not believe that the citizens patrol would be accepted by the police. Actual role. The prosecutor's office believes that the police are doing something tO assist the citizens 307 groups in crime prevention by making use of the silent observer program, and keeping in contact with the schools. Alternatives suggested by the prosecutor's Office as to what they think the police department sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: hOping to change the attitude Of noninvolvement of the citizen, working with the neighborhood association in helping problem people, especially chemically dependent individuals, and trying tO resolve most Of the nonviolent crimes on a neighbor- hood level. The Prosecutor's Office: The Public Defender's Role Ideal role. The prosecutor's Office believes that the ideal role of the public defender in assisting citizens groups in crime prevention is one Of explaining his role to the community, and explaining their rights as individuals. Actual role. The prosecutor's Office is in agreement that the public defender is not actually doing anything to assist citizens groups in crime prevention. They believe that the public defender is reacting to the problem more than acting on a problem. They believe 308 that their limited time and high caseloads, along with the court process itself, limit them in any community involvement. Alternatives suggested by the prosecutor's Office as to what they think the public defender sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: talking to groups and explaining their rights,and explaining the role Of the public defender to the community. They should also try to encourage citizens to come forward to speak on an individual's behalf. The Prosecutor's Office: The Correctional Insti- tution Role Ideal role. The prosecutor's Office is in agreement that the ideal role Of the correctional insti- tution in assisting citizens groups in crime prevention should be one Of having the citizens involved in the rehabilitation program and having the citizens help them develop creative activities for inmates in and out of the institution. There should be more citizen involve- ment in group activities. Actual role. The prosecutor's Office believes that the correctional institution actually has not expressed what type Of program they are planning, and 309 therefore their use Of citizens groups in crime prevention is still Open for question. Alternatives suggested by the prosecutor's office as to what they think the correctional institution sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: developing a better public relations outlook, using local people for rehabili- tation programs, using people on a one-to-One counseling basis, looking up lecture possibilities for prison staff and inmates, and perhaps using an adoptive family approach. THE PUBLIC DEFENDER: A PROFILE Self Concept Ideal role. The public defender personnel believe that their ideal role in crime prevention centers around each individual public defender and his knowledge and experience. The personal influence Of the public defender and his knowledge Of social and environmental conditions are an important influence on a client and his potential to Offend in the future. Actual role. Two—thirds of the public defenders interviewed stated that they use personal influence, rehabilitation programs, employment Opportunities, and counseling in dealing with their clients. One-third Of 310 the public defenders stated that the actual resources for crime prevention are very limited. Ideal organized citizens role. The public defender personnel were in agreement that there is a place for organized citizen groups in working with the criminal justice system to prevent crime. They stated that there is a need for community leadership and that the public defender can use the organized citizens group as a resource to Obtain information about his client and determine a suitable plan for him. Actual organized citizens role. Two-thirds Of the public defenders interviewed stated that citizens groups in Muskegon are active in preventing crime by counseling individuals, helping them find employment, and coming forward to assist the Offender when his counsel is a public defender. One-third of the public defenders interviewed stated that they were not aware Of any real citizen group work in the field Of crime prevention. Alternatives suggested by the public defender personnel for citizens to control and prevent cime are: developing more recreational programs for juveniles, encouraging educational programs, and job training in the community. Alternatives suggested by the public defender personnel as to what they think an organized citizens 311 group considers as possible Opportunities to assist in preventing crime are: develOping a safe atmosphere in the neighborhood, working on a positive attitude toward integration among neighbors, educating residents to neighborhood needs and working with the hard—core families. The Public Defender: The Adult Court Role Ideal role. The public defenders are in total agreement that the ideal role of the adult court in assisting citizens groups in crime prevention should be one Of educating them to the role Of a jury member, develOping better public relations, going to high schools to inform them of the adult court's role, allowing the neighborhood associations to find jobs for convicted felons, using a court watcher concept as long as he is not disruptive to the case, and giving neighborhood people training for volunteer probation Officers. Actual role. The public defenders felt that the adult court was assisting citizens groups in crime pre- vention through the volunteer probation Officer concept. Alternatives suggested by the public defenders as to what they think the adult court personnel see as pos- sible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: the judges should make their 312 duties more visible to the public, especially to the high school age peOple, and the adult court should work with the neighborhood groups on a selective basis. The Public Defender: The County Jail Role Ideal role. The public defenders believe that the ideal role Of the county jail in assisting citizens groups in crime prevention is to involve them in the rehabilitative aspects Of their program, and to work with individuals and their families. Actual role. The public defenders are in agree- ment that the county jail personnel actually are assisting citizen groups in crime prevention through their rehabilitation program and the involvement of the citizen. Alternatives suggested by the public defenders as to what they think the county jail personnel see as possible opportunities to assist citizens groups (N.I.A.) in crime prevention are: developing employment possi- bilities and helping to develop other resources for individual inmates. The Public Defender: The Department Of Social Services Role Ideal role. The public defender believes that the role Of the Department Of Social Services personnel 313 in assisting citizen groups in crime prevention should be that of working together with problem families and devel- Oping neighborhood centers. Actual rOle. The public defender believes that the Department of Social Services is doing some things to assist the citizens group in crime prevention but it is on a case-by-case basis, not an organized effort. They also believe that the turnover in the Department Of Social Services is too high to gain any consistency in knowing a particular neighborhood. Alternatives suggested by the county jail per- sonnel as to what they think the Department of Social Services sees as possible Opportunities to assist citizen groups (N.I.A.) in crime prevention are: hoping to train particular individuals to work with problem families. The Public Defender: The Former Offender Role Ideal role. The public defenders are in total agreement that the ideal role Of the former Offender in assisting citizens groups in crime prevention should be one of educating others to his experience and trying to get them to avoid following the same path he took in his past. Actual role. The public defenders are in total agreement that the former Offender is assisting citizens 314 groups in crime prevention, eSpecially through drug education programs. Alternatives suggested by the public defenders as to what they think the former Offender sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: working with other former Offenders, helping former Offenders find employment, and working in neighborhood association programs. The Public Defender: The Juvenile Court Role Ideal role. The public defender feels that the ideal role of the juvenile court in assisting citizens groups in crime prevention is one Of working with young people before they get into serious trouble and involving them in neighborhood association programs. Actual rOle. The public defender believes the juvenile court is doing something to assist citizens groups in crime prevention but this is mostly in the use Of volunteer probation Officers and church groups. The juvenile court, the public defender states, is under— staffed and this limits its activities. Alternatives suggested by the public defenders as to what they think.the juvenile court personnel see as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: educating the parents 315 to the juvenile process and how they can assist in the avoiding Of young people going through juvenile court in the first place. The Public Defender: The Legal Aid Role Ideal rOle. The public defenders are in total agreement that the ideal role Of the Legal Aid personnel in assisting citizens groups in crime prevention should be one of making themselves available, counseling families and giving them legal advice. Actual role. The public defender believes that Legal Aid personnel are doing some.things to assist citizens groups in crime prevention but most of their work is in civil cases. Alternatives suggested by the public defenders as to what they think the Legal Aid personnel see as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are:. working to develop better leadership in the community. The Public Defender: The Police Role Ideal role. The public defenders are in total agreement that the ideal role Of the police department in assisting citizens groups in crime prevention is to 316 develop better public relations, put a patrolman on the beat again, work with youth groups, develOp a citizens patrol and a neighborhood ombudsman. Actual role. The public defenders believe that the police department is assisting citizens groups in crime prevention, especially in the juvenile division, by visiting the schools and working with the neighborhood groups and their recreational programs. One of the public defenders stated that nothing actually is being done by the police in assisting citizens groups in crime prevention. Alternatives suggested by the public defenders as to what they think the police see as possible Oppor- tunities to assist citizens groups in crime prevention are: working with N.I.A. to educate families, uplifting their role as peace officers in the community; talking to youth and creating good police-community relations. The Public Defenderzi The Prosecutor's Office Role Ideal role. The public defender believes that the ideal role Of the prosecutor's Office in assisting citizens groups in crime prevention should be one Of communicating to the public the rOle of the prosecutor and the problems that he faces. The prosecutor should 317 also attend neighborhood meetings and find out the think- ing Of the people in the community. Actual role. The public defenders state that they actually do not know what the prosecutor's Office is doing to assist citizens groups in crime prevention. They state that there is a need for a vehicle Of informa- tion without jeOpardizing certain cases. Alternatives suggested by the public defenders as to what they think the prosecutor's Office sees as possible Opportunities to assist citizens groups in crime prevention are: helping prevent crime through a process of education, helping with job placement, and allowing a member Of the prosecutor's Office to attend community meetings and communicate ideas. The Public Defender: The Correctional Institution Role Ideal role. The public defenders are in total agreement that the ideal role of a correctional insti- tution in assisting citizens groups in crime prevention is to help the individual keep in touch with his family, help him gain skills for employment, and make use Of citizens groups in the philosophy and nature Of the institution. 318 Actual role. The public defenders state that as Of yet the correctional institution has not done anything to show that they will be working with citizens grOups in crime prevention. The only indication is that there may be some employment for community residents. Alternatives suggested by the public defenders as to what they think the correctional institution per- sonnel see as possible Opportunities tO assist citizens groups (N.I.A.) in crime prevention are: making use of the news media to communicate the nature of their insti- tutions to the public and involving citizens in a number of their programs. THE CORRECTIONAL INSTITUTION: A PROFILE Self Concept Ideal role. The correctional institution believes that its rOle in crime prevention is to develop programs that will help prevent a person from returning to the institution. Actual role. Many programs are being used in correctional institutions to help prevent recidivism. These include treatment services, academic programs, use Of leisure time, and vocational training (job training, auto mechanics, data processing, machine Operation, printing). 319 Ideal organized citizens rOle. The correctional institution believes that there is a definite place for an organized citizens group in working with the criminal justice system to prevent crime. This includes serving in many volunteer capacities such as group counseling, working with inmates' families, bridging the gap between the institution and the community, and assisting in recreational and educational programs. It is limited only in how much the community wants to volunteer. Actual organized citizens role. The institution is scheduled to Open January 1, 1974, and citizens groups are counted on to provide general support for various helping services and to assist other agencies in identifying volunteers that have particular skills needed for a correctional institution. Alternatives suggested by the correctional insti- tution personnel for citizens to control and prevent crime are: developing a variety of programs tO meet particular community needs, attacking poor social condi— tions, and working to help the total person. Alternatives suggested by the correctional institution personnel as to what they think an organized citizens group considers as possible Opportunities to assist in preventing crime are: more reciprocal coopera- tion with law enforcement agencies, public education 320 services, private and public agencies and their services, local government and legislation, housing and employment Opportunities. The Correctional Institu- tion: The Adult Court Role Ideal rOle. The correctional institution believes that the ideal rOle Of the adult court in assisting citi- zens groups in crime prevention is one Of Offering the citizens ways Of involvement to assist in a meaningful direction to the rehabilitation of the inmates; for example, voluntary probation Officer. There should be development Of public relations with the citizens to explain the community-based corrections facility and prison as a last alternative. Actual rOle. The correctional institution states‘ that the adult court is assisting citizens groups in crime prevention through public relations and community- based programs, volunteer programs and the use of community colleges to train volunteer probation Officers. Alternatives suggested by the correctional insti- tution as to what they think the adult court sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: allowing new ideas to evolve through interaction, using business and industry in 321 develOping employment Opportunities, and working on housing problems. The Correctional Institu- tiOn: The County Jail Role Ideal role. The correctional institution believes that the ideal role of the county jail in assisting citizens groups in crime prevention is to interpret to the community the problem of crime and delinquency and Offer to the community Opportunities to become involved in volunteer work. They should share with the community the problems of providing adequate law enforcement to the community and they should solicit support from the community for law enforcement. Actual rOle. The correctional institution believes that the county jail actually is assisting citi— zens groups in crime prevention by making use Of volunteer counseling programs. Alternatives suggested by the correctional insti- tution as to what they think the county jail sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: heavy involvement Of volunteers, and training and educating people to work in vocational rehabilitation programs. 322 The Correctional Institu- tion: The Department of Social Services Role Ideal role. The correctional institution believes that the ideal role Of the Department Of Social Services in assisting citizens groups in crime prevention is one Of promoting Special programs such as Big Brothers and Big Sisters, and providing employment for offenders and their families and pointing Out the needs for particular services in individual cases. Actual rOle. The correctional institution . believes that the Department Of Social Services is assist- ing citizens groups in crime prevention through their work with families, especially with juveniles. Alternatives suggested by the correctional insti- tution as to what they think the Department of Social Services sees as possible Opportunities to assist citi- zens groups (N.I.A.) in crime prevention are: working closely with problem families and allowing more volunteer work from community peOple. The Correctional Institu- hion: The Former Offender Role Ideal rOle. The correctional institution believes that the ideal role Of the former Offender in assisting citizens groups in crime prevention depends on each 323 offender's assessment of what he feels he can do to pre- vent someone from going through what he went through. Related to this is his own stability and life style. Actual rOle. The correctional institution believes that the former Offender is actually assisting citizens groups in crime prevention by working in public and private agencies doing volunteer work and talking to young people. Alternatives suggested by the correctional insti- tution as to what they think the former Offender sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: helping to solve conditions that caused or led him to a life of crime; moving backinto the community and becOming an average good citizen. The Correctional Institu- tion: The Juvenile Court Role Ideal role. The correCtional institution believes that the ideal role Of the juvenile court in assisting citizens groups in crime prevention is one Of interpreting the function of the court to the community and bringing about support of these functions to imple- ment meaningful programs. 324 Actual role. The correctional institution believes that the juvenile court is assisting citizens groups in crime prevention by develOping halfway houses, foster care and residence care programs, and working with private and public agencies such as schools and churches. Alternatives suggested by the correctional insti- tution as to what they think the juvenile court personnel see as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: developing meaningful interaction and dialogue between citizens, business, and public and private agencies; developing halfway houses and other types Of community-based programs. The Correctional Institu— tion: Legal Aid Role Ideal role. The correctional institution believes that the ideal role Of Legal Aid in assisting citizens groups in crime prevention is one Of interpreting legal rights of everyone, especially the Offender, so that due process is achieved; Actual role. The correctional institution is not aware Of what Legal Aid is doing tO assist citizens groups in crime prevention. Alternatives suggested by the correctional insti- tution as to what they think Legal Aid sees as possible 325 Opportunities to assist citizens groups (N.I.A.) in crime prevention are: developing support to provide services to the Offender population, and interpreting rights for citizens. The Correctional Institu- tion: The Police Role Ideal role. The correctional institution believes that the ideal role Of the police in assisting citizens groups in crime prevention is one of explaining the func- tion Of law enforcement, explaining the ways citizens can become involved and helpful to the law enforcement Officer, and also developing organized community-police relations projects. Actual rOle. The correctional institution believes that the police are assisting citizens groups in crime prevention by develOping traffic safety schools and working on drug problems. Alternatives suggested by the correctional insti- tution as to what they think the police see as possible opportunities to assist citizens groups (N.I.A.) in crime prevention are: working with schools, eliciting support for general community functions, and impressing upon the community that good law enforcement demands full coopera- tion from all the citizens of the community. 326 The Correctional Institu- tion: The Prosecutorrs Office Role Ideal role. The correctional institution believes that the ideal role Of the prosecutor's Office in assisting citizens groups in crime prevention involves interpreting the functions and processes of the criminal justice system to the community and emphasizing that incarceration is not necessarily the answer to crime and delinquency. They should also try to generate support for youth programs. Actual role. The correctional institution believes the prosecutor's office is assisting citizens groups in crime prevention by working with community groups, but most Of the prosecutor's staff is tied down by the number of cases and court appearances it has. Alternatives suggested by the correctional insti- tution as to what they think the prosecutor sees as possible Opportunities to assist citizens groups (N.I.A.) in crime prevention are: interpreting the function and process Of the criminal justice system to the community, and finding alternatives for the Offenders. 327 The Correctional Institu- tion: The Public Defender's Role Ideal role. The correctional institution believes that the ideal role Of the public defender in assisting citizens groups in crime prevention should be one Of interpreting legal rights to the community and assuring that due process is carried out in each case. Actual rOle. Correctional institution personnel are not aware Of what the public defender's Office is doing to assist citizens groups in crime prevention. Alternatives suggested by the correctional insti- tution personnel as to what they think the public defender sees as possible Opportunities for assisting citizens groups (N.I.A.) in crime prevention are: interpreting the legal rights of the citizen to the community, and develOping support and financial assistance to provide services to the offender pOpulation. SUMMARY This chapter is a composite Of the interviews conducted with the participating groups and agencies in Muskegon, Michigan. It presents a profile Of each agency condensed from the interviews. The self concept of each agency and its ideal and actual rOle in crime prevention is presented. The ideal and actual rOle Of an organized 328 citizens group, such as a neighborhood improvement associ- ation, is also described. Each agency or group lists alternatives which it. suggests in order for citizens to help control and prevent crime. Suggestions are made as to what the agency or group would consider an organized citizens group could recommend tO assist the criminal justice system in the prevention Of crime. After these Opinions are expressed the personnel being interviewed examine each Of the other eleven agencies or groups in the areas Of their ideal and actual role in assisting citizens groups in crime preven- tion. They also give alternatives as to what each Of the other agencies or groups perceive as viable steps to assist an organized citizens group in crime prevention. Chapter 6 compares these profiles and from this conclusions regarding the data are made. Chapter 6 CONCLUSIONS AND RECOMMENDATIONS CONCLUSIONS This study has dealt with two sets of social systems; formal agencies and natural social organizations (community groups). It has pointed out and analyzed the reciprocal behavior expectations of self and others among the agencies or groups and the neighborhood improvement association. Chart D graphically illustrates the linkages between the two social systems and areas Of consensus and dissensus. Only a select number Of agencies are repre- sented in the chart. These were chosen because their linkages to the neighborhood improvement association are the most critical in cooperative problem solving. The remainder of the chapter, however, describes and discusses all twelve of the agencies and groups. There is a remarkable amount of consensus among the agencies and groups and the neighborhood improvement 'association. Formal agencies realize that there has to be reciprocal cooperation among themselves and community residents if crime is to be effectively reduced. 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However, the more important question for this study is: How can the neighborhood improvement association concept be made Operational to insure success and COOperation among the various members Of the criminal justice system? In this study, as in any scientific endeavor, the question or problem to be researched must be identified. The emphasis here is to determine how a complex maze of agencies can cooperate with citizens to produce effective crime prevention programs. Prior to the initiation Of crime prevention programs, areas of agreement and disa- greement between the various criminal justice components, including the community residents, have to be identified. Chapter 5 has covered in detail the areas Of agreement and disagreement and alternatives within an agency. This chapter will focus on each specific agency: (1) how those interviewed agree or disagree between their actual and ideal role in the area Of crime prevention (self- concept); (2) what the other eleven agencies and groups consider the role and actual behavior Of the particular agency or groups to be; (3) whether there is agreement or disagreement between their self-concept and what others consider to be their actual performance; (4) the major 332 emphasis of the alternatives suggested by the agencies for problem solving in the area of crime prevention. Areas Of agreement between the various members of the criminal justice system are to be stressed while areas of disagreement are to be identified so problem areas can be known and,.rfnecessary, compromises delineated. Following these conclusions, recommendations will be Offered on the neighborhood improvement association and how it can interact with the members of the criminal justice system in crime prevention. The Adult Court Ideal and actual role. The adult court personnel agree that their actual rOle in crime prevention is con- gruent with their ideal role in crime prevention. However, there is not congruence among the other eleven agencies regarding the adult court and its actual per- formance in the area Of crime prevention relative to citizens groups. Three agencies believe that the adult court is fulfilling their function in crime prevention: Legal Aid, the public defender and the correctional institution. Three components have mixed reactions: the county jail, the Department Of Social Services and the 'citizens from the Nelson Neighborhood Improvement Associ- ation. Five agencies or groups stated that they did not think the adult court was effective in performing its 333 rOle in crime prevention. They are the former Offender, the juvenile court, the police department,ifluaprosecutor's Office and the present Offender. Alternatives. There is general congruence between the alternatives suggested by the adult court and the alternatives perceived about the adult court by the other agencies and groups involved. These are: volunteers are useful, employment programs are necessary, quality in processing is essential, and that the court watcher proe. gram insures performance. An area of disagreement between the adult court and other agencies was that the adult court personnel felt the silent Observer technique was a viable alternative to assist in crime prevention. However, it was not mentioned by any Of the other eleven agencies or groups. Five Of the eleven agencies or groups felt that citizens should be actively involved in court processes, and specifically in the pre-sentence investi- gation. In summary, there is agreement in mOst areas between the adult court personnel and the other agencies and groups involved concerning crime prevention and the role Of the organized citizen group. However, in suggesting alternatives the two areas Of disagreement were: the presence Of the silent Observer and the involvement Of citizens in the pre-sentence investigation. The 334 differences have been identified and thus Opponents of each can justify their reasons for suggesting these alternatives and possibly after their justification, can convince one another that they do have a place in crime prevention. If the Opponents do not agree that they do have a place, there can be compromise, an emphasis on the areas Of agreement, and a deemphasis on the areas Of disagreement. In the final analysis there are many more areas of agreement than disagreement. The two areas Of disagreement relative to the adult court would not hinder problem solving. The County Jail Ideal and actual rOle. The county jail personnel believe that with their new rehabilitation program they are actually beginning to fulfill their ideal expectations in assisting organized citizens groups in crime preven- tion. The majority of the agencies and groups interviewed (six) felt that the county jail actually is assisting citizens groups in crime prevention. Two agencies do not feel that the county jail is assisting citizens groups in crime prevention (Nelson Neighborhood Improvement Associ- ation and present Offenders). One agency had no Opinion on this matter (prosecutor's Office). It is significant to note that the neighborhood improvement association 335 did not feel that the county jail was involving citizens in their jail rehabilitation program. Alternatives. There is almost total congruence between what the county jail personnel see as alterna- tives to assist citizens groups in crime prevention and what the other agencies and groups expressed as impor- tant alternatives for the county jail personnel. For example, communication between the jail and citizens, employment for inmates, good recreation programs, use Of volunteers, and effective treatment in rehabilitation programs were all listed as important alternatives by both groups. There were areas Of disagreement for two alternatives. The Department Of Social Services stated that the county jail custodial personnel were too security oriented. The county jail personnel did not perceive this as a problem. Another was that the neigh— borhood improvement association peOple thought that there should be more citizen involvement in the jail program, whereas jail personnel laid no stress on this. Department Of Social Services Ideal and actual role. The Department of Social Services is in agreement that it is fulfilling its actual and ideal role in assisting citizens groups in crime prevention. In regard to how it is perceived by the 336 other agencies and groups, five agreed that it is assist- ing citizens groups in crime prevention, four agencies' or groups had mixed Opinions, one had a negative percep- tion, and one had no Opinion. The mixed groups are the juvenile court, Legal Aid, Nelson Neighborhood Improve- ment Association, and the public defender. The former Offenders feel that the Department Of Social Services is actually assisting citizens groups in crime prevention while the correctional institution had no Opinion. Alternatives. In regard tO alternatives, the Department of Social Services and the eleven other agen- cies and groups are in agreement with the types of alternatives that seem feasible and workable in assisting citizens groups in the areas of crime prevention. These are: recreational programs, school programs, employment Opportunities, helping to integrate the Offender into the community, and working with problem families. The only difference between the Department of Social Services' alternatives and the alternatives of other agencies and groups is that the other groups and agencies feel that the welfare recipient can be used more as a resource to aid other families on welfare through peer group encouragement. The Former Offender Ideal and actual rOle. The former Offender believes that his ideal rOle in assisting citizens groups 337 in crime prevention is yet to be realized. It depends on the individual former Offender and whether he is ready to work constructively for the community. It also depends on whether the community is ready to accept him and use him as a resource.. A majority of the agencies and groups (eight) believe that the former Offender is assisting citizens groups in crime prevention. Two agencies were mixed in their opinion (the adult court and the county jail), and one had no Opinion (Legal Aid). Alternatives. The agencies and groups are in agreement with the former Offender as to alternatives for his assisting citizens groups in the area Of crime prevention. All emphasized using the former Offender more in many areas to assist citizens groups in crime preven- tion. The most prevalent suggestions were to use the former Offender to work with problem youth, present Offenders and other former Offenders. It was also recom- mended that the former Offender talk to citizens groups abOut their responsibilities in the criminal justice system. Juvenile Court Ideal and actual role. The juvenile court per- sonnel unanimously agree they are not assisting citizens groups in the area Of crime prevention. The majority Of 338 the agencies and groups (six) have a congruent Opinion that the juvenile court is not assisting citizens groups in the area of crime prevention. Four agencies stated that the juvenile court is working with citizens groups to some degree and these are the Department Of Social Services, the Nelson Neighborhood Improvement Association, the public defender's office and the correctional insti- tution. One agency had no Opinion (the prosecutor's Office). Alternatives. The agencies and groups agreed on the alternatives suggested by the juvenile court as to how they could do more to work with the neighborhood association in the area Of crime prevention. However, the agencies and groups had many more alternatives and suggestions for the juvenile court. The juvenile court suggestions were rather limited while the other agencies suggested innovative and creative programs. For example, the juvenile court recommended citizens advisory com- mittees, more recreational and educational programs for youth and more church and school involvement. The other agencies and groups suggested more volunteers in juvenile court work, group counseling programs, parent education programs, rotation Of the judgeship and paid neighborhood workers. 339 Legal Aid Ideal and actual role. The personnel from Legal Aid believe that they are assisting citizens groups in the area of crime prevention and are fulfilling their ideal role in this area. There is agreement among the majority of the agencies and groups (seven) that Legal Aid is assisting citizens groups in the area of crime prevention. Three agencies or groups feel that Legal Aid services are not assisting citizens groups in the area Of crime prevention: the former Offender, the present Offender, and the correctional institution. There is one agency (juvenile court) that has a mixed Opinion in this area. Alternatives. The alternatives suggested by Legal Aid and the other agencies are in agreement. How- ever, there is a heavy emphasis from other agencies and groups that Legal Aid should interpret their role to the community and make their services more available to the neighborhoods. The Police Department Ideal and actual rOle. The police department is in agreement that they are assisting citizens groups in the area Of crime prevention, especially in the juvenile bureau. The majority of the agencies and groups (six) 340 also believe that the police are actually assisting citizens groups in the area of crime prevention. Three agencies or groups feel that the police are not assisting citizens groups in the area of crime prevention: the former Offender, the juvenile court and the present Offender. Two agencies are mixed in their Opinion (the county jail and Legal Aid). Alternatives. The alternatives suggested by the police department and the agencies and groups are in agreement, especially in the area of working with the schools and explaining the role of the police officer to the community. The Nelson Neighborhood Improvement Association Ideal and actual role. The Nelson Neighborhood Improvement Association believe that they are working toward preventing crime through their existing programs. The majority of the groups and agencies interviewed (seven) feel that the neighborhood improvement associ- ations in Muskegon are working towards crime prevention. Two agencies feel that the neighborhood improvement asso- ciations and the citizens Of Muskegon are not working toward crime prevention to any great extent: the juve— nile court and the prosecutor's Office. One group was 341 mixed in its opinion (the former Offender). There was no Opinion expressed by the correctional institution. Alternatives. The alternatives suggested by the neighborhood improvement association were similar to those suggested by the other groups and agencies in the area of crime prevention. For example, there was emphasis on a need for recreation for young people, employment for citizens, involvement of the citizen in decision making and heavy emphasis on finding alternatives to occupy the young people's time. There was considerable stress by the agencies and groups on the use Of minority per— sonnel in the decision-making process in neighborhood programs and city related matters. The Present Offender Ideal and actual rOle. (This does not apply.) Alternatives. Alternatives were not requested of other groups but the alternatives suggested by the present Offender for citizens to control and prevent crime are: seeking employment for young people, making programs available to occupy young people's time, and having the citizens watch each others' homes in the neighborhoods. 342 The Prosecutor's Office Ideal and actual role. The prosecutor's office believes that it is fulfilling its role in assisting citi- zens groups in the area Of crime prevention, but it is a limited rOle because Of its small staff. A majority Of the other agencies and groups disagreed with the prosecutor's Opinion. Seven believe the prosecutor's Office is not assisting citizens groups in the area Of crime prevention as it should. One group (the former Offender) feels the prosecutor's office is accomplishing this rOle. There are three agencies or groups that are mixed in their Opinion: the Department of Social Services, Legal Aid and the public defender. Alternatives. There is agreement between the prosecutor's Office and the other agencies and groups as to the alternatives suggested in assisting citizens groups in the area of crime prevention. They suggest, for example, better services to families in the neighborhood improvement association neighborhoods, encouragement for education and recreational programs for residents and assistance in the development of employment opportunities. The groups feel, however, that the prosecutor should do more communicating with other members Of the criminal justice system, and interpret his rOle to the community and to other agencies. 343 The Public Defender Ideal and actual role. The public defenders believe that they are assisting citizens groups in crime prevention but their work is somewhat limited by their small number Of personnel and their high caseload. The other agencies and groups have a varied rOle to the 'actual role of the public defender in assisting citizens groups in crime prevention. Five agencies and groups expressed the Opinion that the public defender's Office is not assisting citizens groups in the area of crime prevention. There were three agencies that had mixed opinions (county jail, Department of Social Services, and the juvenile court). Two agencies said that the public defender's Office actually is assisting citizens groups in the area Of crime prevention (adult court and the police department). There was one group that had no Opinion in this matter (the correctional institution). Alternatives. The alternatives suggested by the public defender's Office and the agencies and groups were fundamentally the same; namely, supporting recre- ational areas for the young, job training and educational development. However, the agencies felt that the public defender should explain his rOle and function more ade- Quately to the community. 344 The Correctional Insti- tution Ideal and actual role. The correctional insti— tution believes that itjrsaccomplishing some Of its goals in the area of involving citizens groups in crime preven— tion. HOwever, the agencies and groups have mixed reactions to the correctional institution's involvement of citizens groups in crime prevention. There are four who are mixed in their opinion: the former Offender, Legal Aid, the police department and the prosecutor's Office. There are four agencies and groups that believe the correctional institution is not assisting citizens groups in the area Of crime prevention: the Department Of Social Services, the juvenile court, the present offender, and the public defender. There are three agencies and groups who believe that the correctional institution is assisting citizens groups in the area of crime prevention: the adult court, the county jail, and the Nelson Neighborhood Improvement Association. Alternatives. The alternatives suggested by the correctional institution and the other groups and agencies are in almost total agreement. There is a great emphasis on programs that help to rehabilitate and reintegrate the Offender back into the community. 345 SUMMARY In regard to the actual performance of the agen— cies and groups in the role that they feel would be ideal to assist citizens groups in crime prevention, nine agencies listed that their ideal and actual roles are congruent. There is consensus that their actual perform- ance and ideal roles are the same. One agency, the juvenile court, does not feel that they are meeting their ideal standards to involve citizens groups in the area of crime prevention. The former Offenders believe that their actual role is still not delineated and therefore it cannot be compared to an ideal role at the present time. The information regarding the present Offender in this matter does not apply. The perceptionscnfthese agencies or groups regard- ing one another's actual performance is mixed. Some of the agencies and groups who feel that their actual behavior involving citizens in crime prevention is living up to their ideal standards, are not perceived as such by the other agencies and groups. Those agencies where there is a discrepancy between their own self- concept and what is perceived of them by others are the following: the adult court, the prosecutor's Office, the public defender, the Department of Social Services and the correctional institution. These agencies received 346 such a varied response on what their role is, that it cannot be definitely stated that their self-concept was totally congruent with how other agencies perceived them. It should also be noted that the county jail, the former Offender, Legal Aid, the police department and the Nelson Neighborhood Improvement Association had consensus between their self-concept and how they were perceived by others. They all felt they were performing well in the area Of crime prevention and the involvement of citizens groups, and were perceived as doing an adequate job by the other agencies. There was consensus between the juvenile court's self-concept and that of the outside agencies. However, the consensus was in the negative context. Both the juvenile court and the outside agencies and groups feel that the juvenile court is not doing an adequate job in the area of involving citizens groups in crime prevention. The present offender's role did not apply in this area. RECOMMENDAT IONS The Normative Sponsorship Theory The Normative Sponsorship Theory originated and developed by Dr. ChristOpher Sower, Professor of Sociology at Michigan State University, was employed as the method- ology for this study. This theory proposes that a 347 community program will be sponsored only if it is normative (within the limits of established standards) to all persons and interested groups invOlved. In imple- menting the Normative Sponsorship Theory the most important aspect is to identify areas Of agreement and disagreement. To begin this process, as has already been pointed out (see Chapter 4), the ideal role of all the concerned agencies and groups has to be identified and then a comparison made with their actual behavior. This has been done in the above analysis and, in most cases, the way the particular organization perceived itself was in agreement with how they were perceived by outside agencies. The differences were also mentioned, and those agencies where there was a discrepancy between how they felt they were actually performing, and how others perceived them to be performing were mentioned. On this basis, areas Of agreement and disagreement can be identified and actively developed. Where the self-concept and outside perception are the same, there is an Oppor- tunity to build upon these areas of agreement. Where the self-concept and outside perception are not the same the disagreement provides an Opportunity to examine why the discrepancy exists and to give those agencies an Opportunity to "present their side of the story.” In many instances, after reasons for the discrepancy are given, insight is provided into why there is disagreement. “If 348 areas of disagreement continue to exist, these agencies can work more closely with one another on their dis- crepancies and compromises can be facilitated. An example of this was given after the adult court conclu- sions were examined. The matrix chart is used to compare alternatives stated by all the agencies and groups to see how much agreement and disagreement exists in this area. As was ascertained previously, there is not a great deal Of disagreement relative to the types of alternatives that should be used among the agencies studied. Where there was disagreement this was pointed out. It was not only mentioned, but the agencies where the disagreement exists were identified. The neighborhood improvement associations in Muskegon have demonstrated a great deal Of initiative, positive motivation, and desire to make their community a better place to live. However, at this point in time, more could probably have been done in the crime preven- tion area. The Normative Sponsorship Theory should be implemented early in the interaction between the neigh- borhood associations and the criminal justice agencies and it should be regularly updated. For example, if the agencies had been aware that in some cases they were not actually fulfilling their ideal role or, in some cases, were perceived as not accomplishing what they thought they were doing, apprOpriate measures could have been 349 taken to rectify the situation. In addition, by identi- fying alternatives that each agency sees as viable, the twelve agencies and groups could have seen for themselves where the areas of agreement and disagreement existed. Once these areas of agreement and disagreement were identified they could have pinpointed the disagreement areas, looking for reasons for the disagreement and then working out compromise solutions. These last comments have been made by the writer in retrospect, and should not be interpreted to mean that the motivation of the neighborhood improvement associations and the other agen- cies in Muskegon should be questioned. However, it can be assumed that if the Normative Sponsorship Theory had been instituted earlier, many of the problems encountered by the neighborhood improvement association and other agencies, relative to crime prevention, could have been reduced or eliminated. It is hoped that this research will help the neighborhood improvement associations in Muskegon as well as the other agencies to continue On the path of positive community involvement in crime prevention. In addition, this research has a more general application to other communities forming neighborhood improvement asso- ciations. They can also benefit from the principles discussed and ideas implemented through the Normative Sponsorship Theory. 350 The Formation of a Neigh— borhood Improvement Association Four important areas should be considered when citizens are forming a neighborhood association. The first consideration is that they should look for key citizens, who are known and respected by the members of the neighborhood, to be leaders. These key citizens can be identified by asking a sample Of the neighborhood who they would recommend as a person who has an interest in the neighborhood and is actually doing something to help improve the neighborhood. These key citizens are not necessarily the most vocal persons in the neighbor- hood nor do they necessarily attend a lot Of meetings (for example, the parent-teacher association meetings). The second consideration that should be imple- mented by the neighborhood association is the use of technical assistance in any area in which they are trying to resolve a problem. For example, if they have a police problem in their neighborhood they should have their neighborhood association representatives talk to the police personnel and share ideas on better policing for the citizen and better citizen COOperation with the police. The third recommendation for the formation of the neighborhood association is to see problems as challenges, ‘351 not as areas of conflict. Once the leaders have been brought together, the Normative Sponsorship Theory could be put into practice. In other words, there would be an identification of areas of agreement and disagreement. After these have been identified, programs that the neighborhood wants to implement can be develOped and, with the incorporation of the areas of agreement and disagreement, programs can be accepted by the parties involved. There may not be agreement in every area, but .there will usually be enough common grounds to predict cooperation and Sponsorship. The next consideration with any program Of this - nature is that it needs constant quality control, and continuous program development and updating. There should be feedback from all parties involved, testing Of new theories and reciprocal involvement. Program evalu- ation should be conducted as well as individual and system introspection. In Muskegon, the Muskegon Area Development Council (the Chamber of Commerce) is the initiator of the neighborhood improvement associations. Chapter 4 describes the case history of their development. In the past, formal agencies have been the catalyst to meet the needs or problems of community development. PeOple have depended on the "outsider" to attempt to organize a community. Today it is apparent that "outside" experts 352 external to the community cannot solve the problems and needs of the city. Therefore, indigenous community resi- dents are now becoming involved in these efforts. They can originate from many different sources ranging from retired citizens to young people. The "outsider" still serves as a technical assistant and is called upon only when the citizens groups want his help. A valuable source Of input is coming from the stu— dent who attends the local community college and sees the neighborhood as his laboratory. Once a group of citizens becomes involved in neighborhood improvement their success is contagious. They prefer to do it themselves and are proud Of their work. The Neighborhood Associ— atiOn and Crime Prevention Mechanical prevention and positive programs. The neighborhood association and its work in crime prevention can take either of two approaches. The first is mechani- cal prevention. It is recommended that a neighborhood association unite and implement certain safety features for the neighborhood. A program such as Operation Identi- fication can be implemented where all valuables are marked with the owner's driver license number or social security number. Electrical marking pens can usually be Obtained through the police department or through certain insurance 353 companies. The neighborhood should have checks on each home to see that there are prOper locks for the doors and windows. They can watch each others' homes, especially when one party is not home. Individuals should leave a light and radio on and stop mail and paper delivery when they are leaving for any extended period of time. It should be a neighborhood policy to report any unusual Observances; for example, abandoned vehicles or strange persons in the area. It should be part of neighborhood policy to have proper street lighting and trash and garbage pick-up. Neighborhoods could also report to the city when an abandoned building becomes a problem to the community, when it is unsafe or a hangout for undesirables. The second approach that the neighborhood asso- ciations should try to initiate is positive programs to combat crime. Some of these are: youth centers, use of school facilities after school hours, use of church facilities for programs and neighborhood events, athletic programs for people of all ages, special programs involv- ing the senior citizens, day-care programs for mothers with small children and babysitting programs for working mothers, a type Of employment referral center, a certi- fied housing program, and a program which provides contacts vfiJfl: the various private and public agencies servicing the community. The neighborhood should know 354 their landlords and encourage them to keep their buildings up to code. Citizens can also attend city government meetings in order to assure representation. Cooperation within other agencies. In the crim— inal justice system the neighborhood association personnel should be trying to develOp some Of the following con- cepts in working with other agencies. In the adult court area, the community could establish a court watcher, a neighborhood ombudsman, sponsors for probationers and contacts for pre-sentence investigation reports. In addition, the adult court could assist in the develOpment of employment resources, and provide assistance in developing community-based correctional residences. The neighborhood association should also work with the adult court in developing other alternatives to corrections, such as a pre-trial diversion project which alleviates the number of people going through the formal criminal justice system. In the county jail facility the neighborhood association should be develOping contacts to work in the rehabilitation program with county jail personnel, to work with the work release programs, and to keep contact between the families of the inmates and the inmate him- self. They also should work as sponsors for particular individuals in the county jail. 355 The neighborhood associations should be working with the Department of Social Services to develop con- tacts between problem families and families in the associ- ation who could be assisting these families. They can work with families who have young people in trouble with the law, and be resources for families who have house- keeping Or budgetary problems. The former Offenders can be used as resources by the neighborhood improvement associations to work with young people, and other former Offenders, and by serving as sponsors in the volunteer probation Officer program. They can also work with Offenders on their way out of county jails and other institutions. The neighborhood association can also help the former Offender to find employment and training opportunities. The neighborhood association can work with the juvenile court by assisting with pre-hearing reports, finding individuals to work as volunteer probation officers, becoming a neighborhood sponsor for a particu- lar young person, COOperating to develop work and employment Opportunities, and using young peOple in school groups to lead discussions involving young people in trouble (Positive Peer Programs). The neighborhood improvement associations can work with the Legal Aid personnel by communicating to the neighborhood the nature of Legal Aid services, and 356 finding Opportunities for Legal Aid lawyers to work in the neighborhood and developing neighborhood law centers. The police and the neighborhood improvement asso- ciation can work together by initiating a type of citizen patrol under certain circumstances, develOping police- community relations teams, developing school-liaison programs and promoting kaffee-klatches in the various neighborhoods on a regular basis. These will enable the police to find out the feelings of the community about crime prevention in their neighborhood, and to find out the types Of crimes being committed but not reported in a given community. This also allows the police to express their feelings to the community in a positive vein. The. police department can have crime prevention units con- tact the community to show them the basic procedures for keeping their businesses and homes safe. The police can help the neighborhoods in developing youth programs. They also can explore the neighborhoOd beat officer concept where the individual police Officer can get to know the community. The neighborhood association should have a community representative who can talk to the police, one who is known and respected by the police. The prosecutor's office and the neighborhood association can work together through individuals who are respected by both the neighborhood and the prosecutor's Office. They can also have the prosecutor or one of his 357 deputies talk to the various citizens groups to explain the policies of the prosecutor's Office and the role of the prosecutor. The pablic defender and the neighborhood associ- ations can work together to develOp the prOper information on a particular individual who is charged with anoffense and to develOp with him a plan for his future. They can also COOperate by developing employment possibilities for people in trouble with the law. The correctional institution and the neighbor— hOOd association can work together if the correctional institution can use neighborhood improvement association volunteers in their rehabilitation programs. They can use the neighborhood improvement personnel to help inmates and their families keep in touch. They can also cooperate in preparing the community to receive the individual to be released, by develOping halfway houses, work release programs, and similar community-based alternatives. Limitations Of the Study The main limitation was that the author tried to incorporateiflxainvolvement Of too many of the agencies in the criminal justice system in this study. The writer feels that perhaps Legal Aid could have been deleted because their personnel did not handle many criminal 358 cases. The prosecutor's Office could also have been deleted because, in this instance, many new personnel were employed, and because of their limited time in their positions they really did not have a thorough knowledge Of the community and its resources. The correctional institution could also have been eliminated because it was not completed at the time of the study and therefore the input it provided and the information about it were limited. Problems develOped because of the delay in initiating the project, because of funding difficulties and also because of the distance between the writer and the study population (Lansing to Muskegon). A third limitation Of the study is the subjective nature Of the interviews. It made Objective condensa- tion of the material difficult and the development Of the profiles a lengthy process. Summary The concept of a neighborhood improvement associ- ation can be a vital tool to combat some of the problems of the cities in America today. It is true particularly in the area of crime prevention. This study points out that there are organized citizens groups existing, func- tioning, and achieving this goal. Every neighborhood has a select few concerned citizens who, if organized, 359 can create a healthy atmosphere in the community. Alone the citizen is limited, united he has power and resources. The study also indicates that the formal agencies of the criminal justice system have a need for, and are ready to accept the constructive organized neigh- borhood group as an ally in combating crime. This study has presented many ideas on what the neighborhood can do in assisting the other components of the criminal justice system and what these agencies can do for the organized neighborhood. The involvement of a neighborhood improvement association in the criminal justice system is limited only by the energy of both the agencies and the citizens. It is one answer to crime prevention. APPENDICES 360 APPENDIX A LETTER OF INTRODUCTION FOR THE PROJECT 361 362 December 11, 1972 Dear Sir: We are asking for your cooperation in a federally funded project that is being conducted in Muskegon, .Mlchigan. Mr. Thomas Christian from Michigan State University is interviewing a selected number of people in MUskegon concerning their ideas toward citizen cooperation with the Criminal Justice System. You have been chosen as a participant in this study. All that is required of you is a personal interview at your convenience lasting approximately one hour. Any assistance you can give to Mr. Christian will be greatly appreciated. Thank you for your time and consideration. Sincerely, (W 70.0019 erber ood Chief of Police MUskegon, Michigan chargi;{TTFZEéfizzitifbg:fai School of Criminal Justice Michigan State University APPENDIX B A MAP OF THE CITY OF MUSKEGON, MICHIGAN 363 364 To WHUTENALL MONTAG UE Mus-(Icon "A 1': m an 3 NORTON > snones ...... X‘@ MT. U°NTALUNA ID. APPENDIX C MATERIAL FROM NEIGHBORHOOD ASSOCIATION'S FILE IN MUSKEGON, MICHIGAN 365 APPENDIX C MATERIAL FROM NEIGHBORHOOD ASSOCIATION'S FILE IN MUSKEGON, MICHIGAN THE NELSON NEIGHBORHOOD IMPROVEMENT ASSOCIATION 1969 Summary Report The Nelson Neighborhood Improvement Association has been Operating this past year with acting co-chairmen instead of elected officers. This was agreed upon by those who participated in the various activi- ties promoted by the Association during the year of 1969. The organization has now approved a constitution to govern its direc- tion of purpose and a set of by-laws to guide the officers and the organization in its further efforts of neighborhood development. A c0py of the constitution will be available to community members at any regular meeting of this Association. The Association will hold regular meetings on the second Monday of each month, starting January, 1970. The meetings will be held in the Nelson Jr. High Band Room starting promptly at 7:30 p.m. and will adjourn at 9:00 p.m. Business of the meeting shall be as follows: 1. Committee reports shall be made to keep members informed of committee's work progress. 2. Board of Directors reports shall be made for membership approval or disapproval. 3. New business will be received and assigned to the appro- priate committee for whatever action necessary. A Board of Directors meeting will be held at least once between regular meetings to keep the business of the Association Operating in an orderly manner. The basic committees of the Association are: 1. Social Concerns Committee 2. Neighborhood Improvement 3. Recreation 366 367 The basic neighborhood action unit will be the Block Club. The block club will be responsible for developing block improvement programs based on the interest of the residents of each block club area. One of the real needs of the Association at present are persons who are willing to act as block captains until block elections can be held. Block captains will be the liaison between "Block Clubs" and the Board of Directors of the Association. The block captain will be the chairman of the block committee that conducts the Association's work and program in that block. . The Association, in 1969, attempted to accomplish several items of importance to our community and the efforts were contributed to by a small dedicated group of citizens. Our meetings were regularly attended by 63 members of the community. The Neighborhood Improvement Committee, chaired by Attorney Thomas O'Toole and Mrs. Mamie Brock, established liaison with our city manager and had issued to our neighborhood a form sheet that indi- cated which city department was responsible for what. This sheet listed each city department chief and phone number. The committee was able to make some progress in having condemned edifices torn down and forced one to be rehabilitated rather than be torn down. The Recreation Committee Chairman, Mr. Ted Hawkins, met with city recreation directors in order to ascertain what kind of city operated program.would be available this winter and spring of 1970 for the Nelson area residents. The Association met with the City Planner, Mr. Robert Lighton, in regard to plans to create off street parking in areas of our community where this presents a real problem. The Association met with JOseph Knowles, Muskegon Urban Renewal Direc- tor, and had the “Neighborhood Development Program" explained fully. The Association later approved the NDP for the Nelson area and sent representatives to the City Hall to participate in the formation of an NDP Council. The Nelson Association designated.Attorney O'Toole, Mrs. Brock, Mrs. Earline Perkins, Edward ijcik, Stanley Perredko and Alfred Williams, Jr. as the Association's representatives. A petition drive to support the creation of an NDP for the City of Muskegon was created by NDP District Council and each NIA took care of their own neighborhood. Mrs. Earline Perkins, chairman of Social Concerns was in charge of the Nelson NIA's responsibility. With the help of a very fine committee (see attached list), Mrs. Perkins netted 700 signatures in support of the NDP. Mrs. Perkins later traveled to washington, D.C. as one of the six representatives sent to meet with Mr. Cox, the Administrative 368 Assistant to Mr. Romney of Housing and Urban DevelOpment Office and presented him with the petitions from all over our city supporting the NDP program. A special bulletin will be sent to our members each month keeping the members informed of the movements of their NIA. The house we purchase for our family to live in represents the single greatest purchase we will make in our lives and the humans living in the house are the most precious of all our possessions because they are our families. What happens to these two parts of our lives is dependent on many things but one of the greatest contributors to the happiness or unhappiness of our lives is the neighborhood we live in and the schools our children attend. The complex problems confronting neighborhoods today are often difficult to solve as a single individual and yet most problems can be solved only as each individual contributes to the solving. So the Neighborhood Association becomes the best kind of group available to work out solutions to the many problems we have to face. The Association gives us the strength of united efforts and gives each individual an Opportunity to express and be heard and offers the vehicle for the individual to work jointly with others without losing their own individual identity. On behalf of our officers and committee chairmen, I wish for you joyful and happy holidays and a New Year that will have prosperity and happiness. If you are interested in your neighborhood, your prOperty or the welfare of your children, please attend the January 12, 1970 meeting of the Association. If you are willing to give some of your time to such a worthy cause, please call 722-3753, ask for Miss Dandridge. ‘ Sincerely, NELSON NEIGHBORHOOD IMPROVEMENT ASSOCIATION Alfred Williams, Jr., President Attachment Committee for NDP Petition Drive Mrs. Earline Perkins, Chairman Mrs. Mamie Brock Mrs. Mary Gaskill Mrs. Stella Singleton Mrs. Marie Theus Mrs. Willie Cunningham Mrs. Laura Redmon Mrs. Velma DeFouw Mr. Ben Martin Mr. Arthur Niva Mr. Nick Johnson Mr. Alfred Rogers Mr. & Mrs. Alfred Williams, Jr. Rev. Russell JOhnson 369 370 PRESIDENT'S REPORT This past year of 1971 was a year of progress for the Nelson N.I.A. The membership has expanded to now include members of the Jefferson Street area. The City of Muskegon has recognized the Association as a capable non- profit corporation and has entered into a partnership arrangement to operate the Certified Neighborhood program for the Nelson area. This program is funded by federal funds. This is the first program in the country to be operated at the neighborhood level. The program presently for the Nelson area is 16 grants for a total of $48,000 and 44 loans for a total of $266,000. The City of Muskegon has contriuted from the Julia Hackley Fund $5,000 to the Association to be used as payroll funds for personnel to aid in the processing of loan and grant applications. The Association received support from the Muskegon Federal Savings & Loan Association, Muskegon Bank & Trust Company, and Lumberman's Bank and Trust each granted 10 loans of $500 each for a total of $15,000 to be controlled by the Association to help our working fami- lies do minor repair and painting of their homes. The local churches in and around the immediate Nelson area have started a series of meetings to create ways of contributing to the community development efforts of the Nelson Association both finan- cial aid and individual volunteer support. To date, $900 has been contributed and over $1,000 more pledged. The Lutheran Churches at this time have contributed the greatest share of the church con- tributions. The Association has had support pledged from eleven of our public agencies to work under the coordination of the Nelson NIA on a jointly sponsored project between the Association and the Human DevelOpment Division of MADC. The project is designed to work very deliberately in a comprehensive manner with our problem families of the Nelson neighborhood. I This years substantial progress in the growth of the Association and its program develOpment could never have been possible without the dedicated commitment of the Board of Directors and many of our mem- bers. There is always a risk taken by the president in singling out individuals from among the team members but I feel that extra.effort should be recognized. - Among the church efforts, Samuel Lutheran has been a pillar of sup- port and is an excellent example of meaningful church involvement in the life of the neighborhood which the church building sets in. 371 Among our very fine people working for the proper development of our neighborhood, I wish to point out the very fine efforts of Stanley Checinski as the Membership chairman, Mrs. Mamie Brock as the ways & Means chairman, Rev. Russell JOhnson as coordinator of church involvement, Mrs. Stella Singleton for consistent activity in all' association efforts. I wish also to express my deep regret of the loss of the services of Mr. Alfred Rogers who resigned late this year as vice president due to the pressing responsibilities of a new job at Brunswick Corporation. An extra "thank you" to Marshall Graves, President of Muskegon Federal Savings and Loan Association and a member of Nelson Associ- ation for spearheading the effort that resulted in 30 bank loans controlled by our association. To the Board of Directors, to many of our unnamed members who worked in kitchens, sold tickets, gathered memberships, attended city hall meetings, supervised car washes, you are special also, and even with the extra efforts of some, our organization could not function without you. So, thank you for all of us who want to live in a healthy and pleasant neighborhood. I wish to acknowledge our new block captains who are pledged to help in a substantial menner the work of our association in 1972. They are: Mr. Ben Martin, Mr. Adam Richmond, Mrs. Mary Penn, Mrs. Marie Theus, Mr. Joe Drew, Mr. Robert Ellis, Mrs. Bobbie Harper, and Mr. Marion Olejarczyk. It has been a pleasure to work with all of you. I urge our neighbors to join. I urge our members to become more active for the Nelson NIA has just begun, and I look to even greater progress for the Association and real success in the fulfillment of our goal—-A GOOD NEIGHBORHOOD TO LIVE IN; A GREAT NEIGHBORHOOD TO RAISE OUR.CHILDREN IN. Alfred Williams, Jr. 372 «demanded c1. ooaaasloo anemone senor «pseudonoloo soapml «dosanupos uaanuoxmam «baa downpouoom use manna comoxmsz m 2.0 H m 2 < m 0 use each Huanuoamnm compo nan connoz one no senses a no xuoaasos use nuancesnuuoam coco no :Owuacmooos ca 0» acoao>ouno< no cascamwpnoo menu nudomouo . :ZOHBommzn DoommommUHmz zowamz: one 373 February 5, 1970 Dear Parent: The Nelson Neighborhood Improvement Association has made arrange- ments with Dr. Dale Williams, M. D. to hold once a month in our community, a "Well-Baby Clinic". This Clinic will be available to families of limited income who may experience financial difficulty in providing correct preventive medical care for their children. The Clinic will be held on March 10, 1970 at the Samuel Lutheran Church located at Eighth and Houston; The parents who return this questionnaire accompanying this letter will be contacted by a member of the Social Concerns Oomittee of the Nelson Association. ‘ . fl 0 7 40 ,- VZU / ,, . Mrs. Earline Perkins, Chairman ' [‘-//%1KCGAJ ; Al (1 Williams, Jr. , President / 374 JOINT NIA MEETING APRIL 28, 1971 DOWNTOWNER MOTOR INN 7:30 p.m. Gene Sheldon, Chairman of the clean-up campaign of the Resource Council stated that the city-wide clean-up campaign would begin May.l with Froebel, Angell and McLaughlin area number of trucks needed in the neighborhoods will be provided. Blowbup maps of area with truck routes, brochures, and UAW'Continental men to work with trucks will be available. Second weekend will be Angell, Marquette, Third week- end will be Moon-Nims and Nelson, Fourth weekend will be Glenside area--The Associations are asked to provide sandwiches and beverage for workers. ’ Mr. David Hartly, Director of Child Protective Service of Department of Social Services, explained the purposes of his department. He stated that a 48 hour period is allowed for investigation after complaint is filed--some cases, however, require immediate investi- gation. Protective Services can remove children if there is no heat, light, etc. in home, if child does not have proper care, such as being fed and clothes, medical reasons physically abused, minor child constantly being left unattended, not attending school, etc. Protec- tive Service and Prosecutors' office have an agreement as to who will investigate. Criminal abuse (statutory rape, molesting) is investi- gated by police department. This department can also make recommenda— tions as to whether a child can be placed back in his hane, in Foster home, in an institution or put up for adoption. Caseworker is available 24 hour daily by calling 722-1621. Robert Hollis reported that the Reeths-Puffer NIA gas project is. finally becoming a reality. Some eleven family were needed to Sign up to complete the project. Also he stated that $7,000 has been given to the Association for the Buel Street playground. Neil Chesebro reported on the Blue Lake Cooperativef—The 72 units are to be completely occupied within the next 30 days. Mr. Chesebro remarked there is a problem of getting the township board to condemn existing substandard dwellings. Comments from members of other NIA indicate a full report and history of this development (the co- 0perative) should be made. Marquette NIA reported that they are doing general work of the NIA‘s. Mrs. Kelly reported the Jackson Hill Young Adults were working very hard to develOp programs to keep youth fran being idled. .375 Mr. Williams, Nelson NIA, reported that Nelson was in the midst of its membership drive. Also a $5,000 grant for 10 $500 loans has been granted the Neighborhood Association for families who cannot get loans normally. These loans are to make repairs and paint up homes. Angell Sharon Kies reported that their Association has been working very hard with the Steele problems also that their area will be the pilot area for street lighting. Muskegon Heights NIA, Mr. Graham reported that Muskegon Heights has presented its Parental Responsibility Ordinance to the city and it has been adOpted and passed. They are now working on a membership campaign. It was suggested that a JOint Fund raising event be sponsored. Each NIA is to send a representative to make plans. Nelson will have Social Concerns and ways and Means Chairman. The other NIA will designate someone at their next regular meeting. Some suggestions were: Martin Luther King movie, Gospel Choir and Raffles. Other items on the agenda were meetings with United Appeal Board and Muskegon County Board of Commissioners. One week before the scheduled meeting, the NIA would like to study the Annual Reports. Discussion on the Parental Responsible Ordinance: Several recommendations were made. £376 Monday, October 16, 1972 Nelson N.I.A. Board Meeting Present were: Stella Singleton Laura Redmon Billy Sheperd Tom Christian Charles Alexander Joe Hall Marylin Knowles Stan Checinski Gloria Dandridge Alfred Williams Edrye Eastman The meeting was called to order by the president at 7:40. Tom Christian, Charles Alexander, and Joe Hall were introduced to the board. Mr. Williams explained the basic outline of the Nelson N.I.A. to Tom Christian, and mentioned the casualness of the Board structure. Mr. Williams reported on the conversation he had with Mr. washington (a land owner on Houston) in regard to the letter be (Mr. Washington) received from the Nelson N.I.A. The card sent to Nelson N.I.A. from Mr. and Mrs. Schanhals thanking the N.I.A. for interest in their yard was read to the Board. Our work in the Nelson school district was commended also in the card. Mr. Williams brought up that City Hall said Nelsons Certified Pro- gram has done three times as much as the Jackson Hill Urban Renewal for the neighborhoods. Board members are to write down the names and addresses of eyesores in the neighborhood and turn them in to Mrs. Knowles or Mr. Sheperd. Mrs. Redmon reported on the idea of breathing tests for the elderly, thinking the test would be better than chest X-ray. She would also be able to supply the transportation if necessary. Mrs. Singleton stated she has clothing for the family at 472 W. Grand. She is to contact the First Congregational Church about getting aid for the family from the church. It was brought up that Samuel Lutheran Church is thinking of buying the land adjoining their property. This land would serve as an enlarged parking lot, once the existing houses were removed. At the next meeting, the housing program will be discussed. Also the possibility of buying the YWCA on Clay, should they decide to sell, with a community center in mind. .377 In the Social Concerns department, the idea of a house for young ladies too young to live alone, yet who wish to leave home was brought up. The ladies would have to be from the Nelson neighborhood. The same type of set-up was also thought of for the young men in our community. Mr. Sheperd, Mrs. Knowles, Mrs. Singleton, and Mr. Checinski will visit the Half-way Heuse and the Harbor HOuse to see if the idea is desirable. Mrs. Singleton will contact Paul . 3..“ Hendrickson about an expanded Half-way House. (There is talk abou buying an old convent for this purpose.) Also, Mrs. Singleton should be prepared to give us a complete report on the Christmas Caroling program by Nov. 6. Mrs. Singleton will call on Mr. walters on caroling publicity. Membership files for Nelson N.I.A. were brought up. Applications presently on file have no date, just the year, and members are wanting a specific date on their applications. Presently, we are on a March to March system. From now on there will be a cross section file, one by alphabetical order, the other by chronological order of the applications. Mrs. Knowles said Aunt Jemimah might sponsor our Pancake Supper. This idea will be looked into. Also, all people working on the Supper should have Health Cards for reasons of publicity (and also cleanli- ness). Tickets will be ready Wednesday, October 19, for the Supper. Mr. Williams will be on the 4-H Council. Mrs. Sheperd will work at organizing youth groups in 4-H and Nelson's N.I.A. Mrs. Price will help Nelson's N.I.A. in achieving interracial groups. Mr. Williams set up a joint meeting with the Moon PTA after talking with the President. The meeting should be held Oct. 31. Mrs. Singleton and Mrs. Redmon are to visit Al Rogers to find out why he is trying to sell his house. Mrs. Jenkins will report on the Problem Family Program at the next Board Meeting. ' The idea of raffling items to raise money was brought up. Items thought of were cars, refrigerators, or a weekend at the Ramada Inn. Members should be prepared to appear before the City Commission or the Julia Hackely Fund Committee in regard to Certified funds. Also be prepared for a short notice meeting. Mr. Williams and Mr. Sheperd will scout the neighborhood. Meeting adjourned at 9:50. 378 This survey is sponsored by the Nelson Neighborhood Improvement Association. YOur cooperation is appreciated. Please answer briefly the questions listed below. 1. Do you feel we have adequate police protection in our immediate community? Yes No 2. Do you think the laws governing juvenile are too lenient? Yes No 3. Do you have a juvenile problem in your immediate neighborhood? Yes No 4. What do’you think should be done about the juvenile delinquency problem? vfi. 5. Wbuld you be willing to volunteer some of your spare time to help solve this problem in your neighborhood? Yes No If yes: Name Address Phone Days and time you are free for service A. C. .379 NEIGHBORHOOD IMPROVEMENT To promote community clean up and beautification projects. To inform members of all other resources that can be co—ordinated in improving the physical aspects of the neigh- borhood. To promote means of safety and protection on public streets for men, women, and children. To promote workshOps on home (construction) building and home improvement. SOCIAL CONCERN 1. To identify through surveys and all other means of neighbor- hood needs in education, employment, retraining, vocational rehabilitation, home management, health, and welfare services. To promote and design programs that will meet the total needs of the family in the neighborhood. To promote clinics and workshop discussion and meetings con- cerning the individual's family social and economical improvement. To identify all available community resources to the associ- ation such as home improvement (Renewal Dept.),.medical services, employment services (recreation for senior citizens, housing for senior citizens, and legal aid services in order that the association may make them available to the neighbor- hood). RECREATION l. 2. To promote the development of programs for the neighbdrhood that will meet the recreational needs of all age groups of the neighborhood. To define recreational programs and needs. WAYS AND MEANS 1. Shall be responsible for the raising of the necessary funds to finance the various improvement projects sponsored by the committees of the association as they are needed. 380 ARTICLE OF ASSOCIATION I. PURPOSE AND OBJECTIVE: To eliminate public apathy and indifference toward crime and law enforcement and injustice, by encouraging and assisting task force teams of private citizens and law'enforcement officers of Muskegon, in developing practical programs to cope with local problems affecting Police-Community Relations and the adminis- tration. II. PROGRAM GOAL: 1) To eliminate public apathy in the areas of - a) unwillingness to act as a witness b) to perform jury duty c) to report crime d) to respect lawfulness, law-enforcement agencies, and fellowman 2) To correct law-enforcement agencies in the areas of - a) bureaucratic indifferences and inefficiencies b) neglect of duty c) misuse of authority III. NAME: The name of this association shall be the Muskegon Police- Community Relations Team. IV. MEMBERSHIP: The team.membership shall be - a) 3—Law enforcement officers b) 5-Community - from various groups c) 2—Educational representatives d) 2—Youth Also resource individuals to be contacted for specific information. 381 January 11, 1972 Michigan Legislature JOint Capitol Outlay Committee Lansing, Michigan Gentlemen: The Angell Neighborhood Association, Inc. would like to take this opportunity to express our support for the prOposed location of a medium-security prison in the Industrial Park of the City of Muskegon. {if It is our sincere belief that locating the prison on this site poses no danger, real or anticipated, to the residents of the City of Muskegon. Furthermore, we feel the increased activity in the construction and related fields will be a much needed "shot in the arm" for the city's lagging economy. In addition to the employing of contractors, we feel the related increase in sales of materials will provide additional employment Opportunities. Installation of public utilities in the Industrial Park may well be the needed impetus for securing new and additional manufacturing facilities in the Muskegon area. Further delay on the part of supposedly well-intentioned persons can only serve to postpone or prevent implementation of this desperately needed facility in our city. Sincerely, Randall L. Kies, Vice President 382 The Nelson Neighborhood Improvement Association in coopera- tion with the Community Education Department of the Muskegon Public Schools and the City of Muskegon Department of Parks and Recreation is planning a fun summer for the youth of the Nelson neighborhood. If youare interested in being in theprogram, fill out the attached form and turn it in to your home room teacher. You will be notified of the time and place for you to register. Please fill out your form completely. When you show your choice of activities, show: first choice as second choice as HIE third choice as Etc . 383 NELSON NEIGHBORHOOD IMPROVEMENT ASSOCIATION, INC. Youth Summer Program Registration Form B Male C] Female Age Grade NAME Phone ADDRESS Parents I: Softball [3 Volleyball 1:] Horseshoes E] Tennis D Golf E] Badminton [:3 Track E] Archery [:I Rock Hounds [:1 Craf ts E Cooking [3 Fishing 1:] Charm Any other interest not listed please write in. 384 NIA PROGRAM PROJECTIONS 1972 Stabilize neighborhood Administer Certified Area Program (City of Muskegon & HUD) Juvenile Crime Prevention Administer Certified Area Program Street Crossing (Safe street crossing for Angell Students) Juvenile Crime Prevention Blue Lake-Dalton 1. Community Center 2. Strengthen Co—Op organization Russell Road (Reeths-Puffer) 1. Natural gas service completion by Spring of 1972 2. Community Center Marquette 1. Maintain neighborhood through COOperation with Richard Johnson in selection of recipients of 236 Housing Heights 1. DevelOp leadership Because of comradeship among the associations, Muskegon Heights NIA would not indicate their program emphasis at the Nelson NIA dinner held January 15, 1972. They indicated that the press would be carrying the news very shortly and that the rest of the Associations would know that the Heights is in there pitching. 385 THE BLUE LAKE - DALTON NEIGHBORHOOD ASSOCIATION, lllc. ' PRESENTS . . . To our Friends and heighten of Blue Lake and Oalten Township . . . A NEW IDEA in home ownership. how to get the most from your housing dollar. Be a cooperator. and enjoys brand new FHA insured home LITTLE 33’ DUE LAKE ‘ C ()0 PERATIVE ‘3 ‘8 Low AS $ 6 0.00 ran acute \ sponsonro_ awe LAKE— euro" NElGHOORHOOD assocwlou ~‘-'“ "- suuocn_ HARBOR mus. Inc. , : rcn SERVICES. INC. I _coopsmnve REPRESENTATIVES film. at far less cost than you thought possible. The Model House. a 3 bedroom. will be previewed for your inspection. May 31. There will be 72 new homes. some 2 bed room. some 3 bedroom. some 4 bedroom. When you buy a share in this cooperative. You get a new home of the size your family needs. The monthly charge may be as low as $60.00. depending on income. includes insurance. water. heating, most main- ' r tenance. garbage and trash pick-up. All houses will be furnished with refrigerator. “"99. ceramic tile bath alcove with shower over tub. gas furnace. screens and storm windows. A Community Civic Center and playground will be adjacent to housing area. These homes are intended for the People of our two townships who need and want better homes. ,You have first chance to apply. If you do not have the small down payment. apply anywayl The Blue Lake - Dalton Neighborhood Association may be able to assist you. Plan now to inspect the model when it opens May 31 and make your application to the cooperative repre- sentative at the model. After June 15 the houses will be offered to the general public. The Model House is located on Progress Drive. which runs West off Putnam Road about lOOOfeet North from White Lake Drive. COME and SEE! l l . ' - ' 5:00 p.m. Sundays : : to 0:00 .In. Only - Closed Thursdays 12.00 to HOURS 12 00 p PHONE: 094-5157 or 894-5190 APPENDIX D THE INTERVIEW FORMAT 386 ‘ '.-_. [HW- "Us. D.C. Place 5. 5. 6. 7. 8. 10. ll. 12. 13. 1!}. 3£37 DU Nb: units IA! It!!! SPACE beck Ii) I Phase (2) filbjdl w (3) , . Card dunner (A) txrueanuu sues: """"" “1'1. 2. m. “Hull".- Age: Under 25_ 25-29__ :o.3r._ 3549 no.“ as.z.9__ so.srt_ 55.59__ so J3m__‘. Mari tel Status: Single liars-led 3m:ed__ Divorced Widowed .tnber of Children (including stepchildren): Sons Daughters Father's ocatnation and place of work: (If deceased, list his major occupation during: his men; years) .-I‘ether's occupation and place of work: (If deceased. list her major declination during.- her working years) How much tonal education have you had? Jighschool l 2 3 4 iqu iva lency ccrti f i cate- College (undergraduate) .i 2 3 a College grar‘uate l 2 3 l: '3 6 7 8 or over .‘lajor field in college What degree(8) held fetal years of experience in your present type of work: Less than l___ 1-3_ 4-6__ 7-iO___ li-iS__ l-fz-20__ 21-25 26 or more— h’ow many years have you lived in luckegon, .iichigan? Since 1966, have you ever lived in the liaison neighborhood? it yes, hotr «any years? Are you fmi liar with any 54.1.1. in .usltegon? Yes .to m._____ (3) l (9) l (Io-II)___ (I2) (:3) , (14) a . :m “‘4“ . a ‘eo.3 l}. l6. 17. 18. 19. 20. When was your last contact vith a J.I.A.i “hot was the nature of the contact? .an'uuch contact in the past year(l972) have you had with a d.I.A.? ' A Area of involvement: 12. Adult court County jail Dept. of social services Earner offender Juvenile court “all 0‘0 khskegon noiice 36!.” i‘foleAe tresont offender Rrosecutor's office ,”,__ i‘ublic defender __ security institution _____ vreaent position: I. 2. 3. 4. 5. 5. 7. 3. Do Judge circuit district Lawyer nelson citizen (only) _____ volice officer trobation office adult juvenile Sheriff '3 dooart‘aent _- Social services __ other you consider your oosition staff-adninistration or line field? 388 (19) (20)., _,u (2 l).______ (22-26) _.,_ (ZS-26) _,, (27)____ 389 2‘!°.' questions for self concept Row Meal 1. to'hat is the role of in crime prevention: 2. What place is there for orcmisod citisen's grams like thin-i. in working; with the ¢.J.8. to orevant crime? ' Actual 3. What is your organisation actually doing to orevent crime: A. ”bet are the citizens in duskemn and especially in .i.l.li. coin; to arovent cri no: Alternatives 5. ”hat do you think are viable alternatives for citizens controllin:. anc‘ oreventin; cri'ae? 6. iu'hnt do you think citizen's ;roups (N.I.A.) see as viable alternatives for nreventinr: crime? ”h o ‘ .mr—A_5 1 . 4b.! mastions for ideal 1. mm should the role of ' a. in assisting citisen's grouse 01.1.4») in crime precaution? Actual 2. "hat is actually doing to assist citisui's ' groups (N.I.A.) in crime prev-Itisnf Alternatives 3. What do you think sees as viable alternatives for assisting.- citisen groups (d.l.A.) in crime nrevantion? vi?" 'A. mun—A. APPENDIX E MEMBERSHIP LIST OF NATIONAL NEIGHBORS 391 ...s—.—_-._._ . . 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Books Alchin, Edward A. Change and the Nature of Contemporary Community. East Lansing, Michigan: Institute for Community DevelOpment and Services, Michigan State University, April, 1970. Alinsky, Saul D. Reveille for Radicals. Chicago, Ill.: University of Chicago Press, 1946. Altshuler, Alan. Community Control. New York: Pegasus, 1970. . The City Planning Process. Ithaca: Cornell University Press, 1965. Amos, Wm. E., and Wellford, Charles F., eds. Delinquency Prevention: Theory and Practice. Englewood Cliffs, N.J.: Prentice-Hall, Inc., 1967. Anatomy of a Community: Characteristics of the People of the Muskegon County Area. Muskegon, MiCh.: CiVic Affairs Research, Inc., 1968. Baltzell, E. Digby. Philadelphia Gentleman. New York: Free Press, 1958. Beal, George A.; Kloughan, Gerald E.; Yarbrough, Paul; Bohlen, Joe E.; and Dillman, Don A. Systems Link- ages Among Women's Organizations. Rural Sociology Report No. 42, Dept. of Sociology and Anthropology, Iowa State University, Ames, IOwa, 1967. Brandstatter, A. F., and Radelet, L. A., eds. Police Community Relations: A Sourcebook. New York: Free Press, 1968. Brinkerhoff, Merlin B., and Kunz, Phillip R., eds. Complex Organizations and their Environments. Dubuque, Iowa: Wm. C. Brown Co., 1972. Burghardt, Stephen, ed. Tenants and the Urban Housing Crisis. Dexter, Mich.: The New Press, l972.~ 396 397 Cahn, Edgar S. and Cahn, Jean Camper. "Citizen Participa- tion.“ Urban Development. Edited by Hans H. B. Spiegel. Vol. 1. Washington, D.C.: Center for Community Affairs, N.T.L. Institute for Applied Behavior Science, 1968. Carmichael, Stokely, and Hamilton, Charles V. Black Power. New York: Vintage Books, 1967. Cary, Lee J., ed. CommunitygDevelopment as a Process. Columbia, Mo.: University of Missouri Press, 1970. 2.4 '3” EAK' Citizens League. Sub-Urbs in the City: Ways to Expand Participation and Representation in Minneapolis Government. Minneapolis: The League, 1970. 97"“ a.“ '5'. Clark, Kenneth B. Dark Ghetto: Dilemmas of Social Power. New York: Harper and Row, Publishers, Inc., 1965. Coffey, Alan; Eldefonso, Edward; and Hartinger, Walter. Human Relations: Law Enforcement in a Changing Community. Englewood Cliffs, N.J.: Prentice- Hall, Inc., 1971. Cohen, Albert. Delinquent Bgys. Glencoe, 111.: 'The Free Press, 1955. Coleman, James. Community Conflict. Glencoe, Ill.: The Free Press, 1957. Committee for Economic Development. Reshaping Government in Metropolitan Areas. New York: The Committee, February, 1970. Community Development Series. Washington, D.C.: Con- struction and Civic Development Department, Chamber of Commerce of the United States, 1960. Cox, Fred M.; Erlich, John L.; Rothman, Jack; and Tropman, John E. Strategies of Community Organization. Itaska, I11.: F. E. Peacock Publishers, Inc., 1970. Crime Prevention Training Program. Macomb County Commu— nity College, Mich.: Macomb County Community College, 1973. Denzin, Norman K. The Research Act: A Theoretical Intro- duction to Sociological Methods. Chicago: Aldine Publishing Co., 1970. 398 Fairweather, George W.; Sanders, David H.; Cressler, David L.; and Maynard, Hugo. Community Life for the Mentally Ill: An Alternative to Institutional Care. Chicago: Aldine Publishing Co., 1969. Fantini, Mario; Gittell, Marilyn; and Mogat, Richard. Community Control and the Urban School. New York: Praeger Publishers, 1970. Gaillard, Freye. White working-Class Groups Unite. East Lansing, Mich.: Michigan State University, Office of Human Relations, Institute for Community Development and Services, July 2, 1971. Gardiner, John W. In Common Cause: Citizen Action and How it Works. New York: W. W. Norton & Co., Inc., 1972. Graves, W. Brooke. American Intergovernmental Relations: Their Origins, Historical Development and Current Status. 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Hazelrigg, Lawrence, ed. Prison Within Society. New York: Doubleday and Co., 1968. 399 Jacobs, Jane. The Death and Life of Great American Cities. New York: Random House, 1961. James, Howard. Children in Trouble. New York: David McKay Co., Inc., 1969. Johnson, Norman; Savitz, Leonard; and Wolfgang, Marvin E., eds. The Sociology of Punishment and Correction. New York: John Wiley & Sons, 1970. Kahn, Alfred J. Planning Community Services for Children in Trouble. New York: Columbia University Press, 1963. Kahn, Si. How Pegple Get Power. New York: McGraw-Hill Book Co., 1970. Kobetz, Richard W. The Police Role and Juvenile Delin— guency. Gaithersburg, Maryland: Association of Chiefs of Police, Inc., 1971. Kotler, Milton. Neighborhood Government. New York: The Bobbs-Merrill Company, 1969. Kvaroceus, William. The Community and the Delinquent. New York: The World Book Company, 1954. Liebow, Elliot. Tallyjs Corner: A Studygof Negro Street- corner Men. Boston: Little, Brown and Co., 1967. 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