Community Policing Awards: Finalist - Los Angeles, California Police Department

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Community Policing Case Studies with IACP/ITT Night Vision Community Policing Award

The Problem
During the course of many years, the area in downtown Los Angeles known as "skid row" has evolved into a diverse community of residents, businesses, merchants, service providers and shelters. As time passed, a street culture developed among the "homeless," wherein it became acceptable to create encampments on the sidewalks. These often consisted of tents or makeshift dwellings covering an entire block. This forced people to walk in the streets or to avoid the areas completely, causing an adverse effect on the quality of life of those living or working in the area. Inhumane living conditions and extreme health risks became commonplace. The criminal behavior in these concealed areas created an environment where homeless individuals become more likely to be victims of crime. It also enabled illegal activity to flourish. These activities included prostitution, narcotics and aggravated assaults. It also attracted gangs who prey on those most vulnerable.

The Solution
Accepting the status quo was not an option for the Los Angeles Police Department (LAPD) and more importantly, the community it serves. A partnership with the community, service providers and many city and county agencies was formed to "effect a change." A strategy that included networking among service providers and mental health agencies was an integral part of the partnership. Finally, the law enforcement component was added. This included having an officer assigned full-time to this cause, as well as a volunteer unit assigned to handle “homeless” issues, including making personal contact and offering outreach, and/or coordinating services to encampment locations.

A committee was formed to address concerns regarding the large number of encampments throughout downtown Los Angeles. Suggestions and partnerships developed by this committee were used when enforcement actions were implemented throughout Central Area. Specifically, a group of 12 volunteer officers and a sergeant known as the “Eastside Detail” received special training focused on dealing with “homeless” and mental health issues.

The objective was set to reduce the number of large encampments within Central Area in a way that included service providers and community outreach. The goal was to stay focused on this issue and not emphasize the global issue of “homelessness.” Outreach was the primary method of effecting a change, and enforcement was used as a last result to effect criminal behavior, not the condition associated with "homelessness." As a result of these efforts, it was anticipated that the project would yield the following results:

• Decrease encampments
• Decrease crime
• Increase shelters and support program usage
• Increase arrests

Next, the LAPD’s Eastside Detail completed a comprehensive map identifying the major areas where encampments had taken hold. This involved the Eastside Detail conducting inspections every morning at approximately 4:00 a.m. and systematically going from street to street counting these encampments. Also, business and residential community members participated in identifying encampments in their areas. Although the numbers were fluid, the average number of encampments located in downtown Los Angeles averaged from 350 - 400. Based on this map, the committee identified two major areas and subsequently a third for outreach and enforcement. These areas consisted of approximately 170 encampments and were considered part of the most problematic areas.

The committee began organizing interested community members and service providers to initiate outreach and lobbying for available shelter spaces within Los Angeles. As a result, a close partnership also was formed with the Los Angeles Homeless Services Authority, who provided extensive outreach throughout the encampment areas through its Winter Shelter Program. With the support of the mayor’s office, several council members, numerous other organizations including this committee and the LAPD, an additional $3.5 million was appropriated by the city to keep approximately 860 bed spaces and services available. Having community members, service providers and police department personnel walking the street and offering help to the “homeless” in this way, was a departure from the "enforcement first" philosophy that had existed in years past.

Additionally, a joint private/public partnership was formed with the business community to establish a warehouse location where “homeless” individuals could bring their personal items and store them during the day as they used services, found employment or just as a safe place to put their property. This warehouse also provided a dual benefit in that it was a secure location that allowed department personnel to store excess personal property associated with an arrest. This solved a major dilemma for officers, as they would spend an average of 45 minutes on an arrest but take another five to six hours to book and itemize excess personal property. This would take two officers out of the field and prevent them from serving the community. By having this warehouse, items could be photographed, packaged and tagged, then held until claimed. Establishing the warehouse reduced the total process for each officer by approximately an hour and a half. If the items were not claimed, they would be disposed of after an appropriate amount of time.

Evaluation
Evaluating the success of this endeavor proved a challenging task. A fundamental question needed to be answered: Was the community in a better position as a result of this project than when it began? The answer revealed both quantitative and qualitative results. Statistically, the second mapping of the area by the Eastside Detail revealed an average of 75 -100 encampments on any given night compared to the original number of 350- 400. Visually, the “homeless” encampments no longer had control over city blocks. In the eyes of the local community, this alone constituted a success. The community members who use or work in these establishments and the residents who live in the area feel safer, and complaints regarding crime are decreasing substantially. In fact, areas that produced the most victim impact letters, in which stakeholders asked for assistance with crime and unsanitary conditions, now are expressing gratitude and a renewed faith in the department in ways not quantifiable statistically.

In reviewing the process, three of the four anticipated results have been accomplished: a decrease in actual encampments and a decrease in crime complaints in the areas where enforcement actions were taken; and the increased usage of shelters and support programs. The one goal that did not meet expectations was that of increased arrests. The combined outreach efforts by the community, service providers and the department resulted in far fewer arrests than anticipated.

An unanticipated consequence of the program was the local media attention given to this endeavor. Media interest in "homelessness" had again moved "above the fold" in local papers. Although it would be unrealistic to credit this committee for the renewed interest, it is clear that the unique approach taken by this project made this issue more newsworthy. The greater good of bringing this concern to the public consciousness serves everyone involved.

In reviewing this project, several significant items of note were learned or reinforced. First, that focusing on outreach for this project showed that people with diverse opinions could unite under this tall order and focus toward helping our “homeless” community. This approach created a partnership that helped to solve an entrenched problem using a full-spectrum approach. This reinforced the need to draw in stakeholders from the community to participate actively in the problem-solving process.

Interestingly enough, the individuals most impacted by this plan were the “homeless” themselves. On more than one occasion, individuals would relay to the senior lead officer (or homeless coordinator) that they were appreciative in the way in which the department was handling the encampments. Although they did not want to be moved, they understood that they were in violation of the law and were appreciative of the services being offered to them. Essentially, they felt a sense of empowerment through an opportunity to make a choice of services rather than just being arrested. This goes to the heart of our motto “to protect and to serve." Not only was this project receptive to the needs of the community, it took into account the needs of the "homeless" in a way that was compassionate and served all.

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