Rural Youth Gang Problems: Adapting the Office of Juvenile Justice and Delinquency Prevention's Comprehensive Approach
Purpose To assist rural communities1 in dealing with youth gang problems in a strategic manner. Through this 1-year planning, assessment, and strategy development project, the Office of Juvenile Justice and Delinquency Prevention's (OJJDP's) comprehensive gang model2 will be adapted to the unique needs and conditions of rural communities that are experiencing emerging gang problems. Background This program implements Part D, Subpart II, Section 282 of the Juvenile Justice and Delinquency Prevention (JJDP) Act of 1974, as amended. In 1987, OJJDP began supporting a long-term research, development, and testing project to design a comprehensive approach for the prevention of youth gang violence. This project-directed by Dr. Irving Spergel and others at the University of Chicago-concluded its initial phase of research and development in the early 1990's. From the initial phase, which included literature reviews, surveys, site visits, focus groups, and original research, a comprehensive model was developed for the prevention, intervention, and suppression of youth gang crime and violence. The comprehensive gang model calls for five core strategies to be delivered through an integrated and focused approach from a core team of community agencies and organizations. The five strategies are (1) community mobilization; (2) social intervention, including outreach; (3) provision of opportunities; (4) suppression, social control, and accountability; and (5) organizational change and development. The model requires that these strategies be delivered in a focused manner, based on a thorough assessment of the current gang problem, its potential causes, and contributing factors. Although the model specifically and principally involves intervention and suppression, it is based on the premise that focused prevention efforts consistent with the problem assessment are in place. An example of this type of focused prevention would be the full implementation of the Bureau of Alcohol, Tobacco and Firearms' Gang Resistance, Education, And Training (GREAT) curriculum in schools serving the areas targeted by the project. The GREAT program is demonstrating promising results in an evaluation funded by the National Institute of Justice. In late 1994, OJJDP initiated the final component of this long-term research and development project-testing the comprehensive gang model. In 1994, OJJDP competitively awarded grants to five communities to implement the comprehensive gang model and participate in a national evaluation. Although this initial solicitation was open to all communities and jurisdictions, the communities selected through the competitive process were generally urban and suburban in nature. Evidence suggests that youth gangs are emerging in rural areas. While responses to the 1996 National Youth Gang Survey have not yet been thoroughly analyzed, preliminary results appear to confirm the 1995 finding that gangs are not just a "big-city problem." Twenty-five percent of sheriffs' departments in a sample of rural counties reported active youth gangs in their jurisdictions during 1996. As defined by the Federal Bureau of Investigation's Uniform Crime Reporting program, rural counties are those outside a Metropolitan Statistical Area (MSA) and are mostly composed of unincorporated areas. In addition, 35 percent of police departments in a sample of cities and towns with populations between 2,500 and 25,000 reported youth gangs in 1996. Most small-city and rural-county reporting of gang problems trace gang emergence to the early to mid-1990's. Other agencies have also confirmed emerging gang activity in rural areas. In one recent study of rural junior high and high school guidance counselors, more than one-third of the respondents indicated an increasing gang presence in their communities, with few reporting any prior history of gangs (Caldarella et al., 1996). More than one-third of counselors reported an increased presence of graffiti on or near their campuses, with the same percentage also indicating students displaying gang-related behaviors and clothing. This same study proposed that the emerging nature of the problem in these rural areas suggests that timely and coordinated interventions were needed and that more research is necessary to help better understand the unique issues of rural gang problem assessment, etiology, interventions, and outcomes. Although the limited research available on the subject of rural gang activity suggests the need for a modified intervention strategy for rural gangs, a totally different model with an altogether different set of services does not appear to be required. OJJDP believes that implementing the comprehensive gang model in rural communities and adapting the processes used around the five core strategies is the key. This initiative represents the first steps in adapting this model to gang problems in rural areas. The adaptation of the model in up to four rural communities will be complemented by a technical assistance project already funded and by a process evaluation that is also being solicited in fiscal year 1998. The intervention offered by the comprehensive gang model is based on services (treatment and sanctions) to individuals and changes in community and agency responses to the gang problem. The model is not necessarily dependent on an urban landscape or problems unique to urban areas. The strategies of community mobilization, social intervention, opportunities provision, suppression (including formal and informal social controls), and organizational development are expected to remain constant. The requirement that these strategies and the services provided within them be highly coordinated or integrated and focused on a specific population requires no adaptation, as notions of the benefits of integrated services span across geographic boundaries and population densities. Goals To support up to four rural jurisdictions in a planning and assessment process for adapting and eventually implementing the comprehensive gang model for gang prevention, intervention, and suppression. Objectives The objectives of this project are to:
Program Strategy Based on OJJDP's experience with the currently funded gang demonstration sites in Mesa and Tucson, AZ; Riverside, CA; Bloomington, IL; and San Antonio, TX, the need for a detailed problem assessment and planning process prior to implementing the comprehensive gang model is clear. OJJDP and the five demonstration sites spent approximately 9 to 18 months conducting an assessment of the local youth gang problem and planning the implementation of the model based on their findings. In many cases, the capacity for collecting the necessary data (e.g., gang-crime incident data, youth-related indicators, and risk factors) in the necessary manner (e.g., aggregated and de-aggregated to subjurisdictional levels) did not exist. In some cases, limited service delivery began prior to the completion of the assessment and planning process, causing some considerable difficulties that needed to be resolved during the second year of the 3-year projects. To avoid these same situations and to prepare funded sites for program implementation and evaluation of the model in rural areas, OJJDP will make initial awards to conduct an intensive 1-year youth gang assessment and planning process. Jurisdictions selected for award under this announcement must have fully addressed in their application, and be willing and committed to undertake, the following basic assessment and planning processes: Data Collection If selected, as part of the planning process, jurisdictions must first identify and begin to collect data on problems affecting youth in the jurisdiction. The data should span several domains, including individual/peer, family, community, and school. Simply collecting data on youth gang crimes or in a single domain is insufficient because the youth gang problem and its causes are not limited to a single domain or dimension. The following are examples of domain levels and related indicators.
In general, data collected should be the most recent available in a form that permits analysis below the community level-geocoded data would be the ideal, although not required. While some data will presumably be available through routine reports and previous studies, this may not be sufficient. Certain data, such as gang and nongang crime data, may need to be collected or cross-tabulated in a special manner to observe certain patterns, such as offense locations, time of day, and race, sex, and ethnicity trends. In cases where this level of detail is necessary, some original data collection and/or analysis may be necessary. Because of the importance of law-enforcement-based crime and delinquency data, especially youth gang incident data, one requirement for the project is that the law enforcement agency with primary jurisdiction in the area affected by this project must already be collecting youth gang incident data in some form or have the capacity and willingness to begin doing so in the event of an award under this initiative. It is possible that, with the exception of gang incident data, other data may be substituted for or added to this listing of data. The assessment of the jurisdiction's gang problem must be based on data. Some of these data are already available, and some-because of their importance to the model-must be collected for the gang problem assessment. Applicants should note that not all of the data used in this process need to be quantitative. The perceptions and anecdotal evidence of focus groups, citizens, youth, service providers, and others can be an important tool and can sometimes provide information that official records and other data cannot. Applicants should describe in their applications what data may be available and a proposal for how these data would be collected and additional data identified and collected. Also, a discussion of data that are not available and methods for collecting supplemental data to compensate for this lack of availability should be provided. Data Analysis and Assessment Once the data collected are in the proper form (community, area, street, individual address level, or otherwise geocoded), jurisdictions must begin to create an assessment of the gang problem. Although commercial, generic, and structured community problem assessment models exist, jurisdictions do not have to use one or any of these. Questions to be answered in this phase of the process include:
Also, assessing agencies' current and past responses to gangs and gang-involved youth will be critical to the assessment process. Once the data have been thoroughly analyzed and these types of questions, and others relevant to local concerns, have been answered, the jurisdiction will complete the assessment by identifying key findings about the current nature and scope of the youth gang problem and its potential causes. The model is based on the premise that focused prevention services must also be in place; therefore, these findings will form the basis for the eventual comprehensive strategy that will include prevention, intervention, and suppression services. The "buy-in" of agency leaders and the community at all phases in this process is key, so that the resulting strategies will have broad support. This process does not require scientific research procedures. While following scientific or quasi-scientific procedures would add value to, and enhance confidence in, the findings of the assessment (and should never be discouraged), the key is to identify and answer key questions for purposes of short- and eventually long-term policy development. Applicants should describe a plan that includes identifying key individuals to be involved in this process and critical factors to be considered. Planning and Strategy Development (Adaptation of the Model) Once the selected applicants have collected the necessary data and conducted an assessment of the youth gang problem, a planning and strategy development process based on the comprehensive gang model can begin in earnest. It is essential that key agency leaders and a diverse group of community and youth representatives are involved at this stage and committed to the model. Members of this group must be fully briefed by those responsible for overseeing the process on what data have been collected, why they are important, and how they are being used. Then, the group can begin to discuss the findings of the assessment, suggest further areas of exploration, and formulate a strategy for youth gang prevention, intervention, and suppression that is responsive to the assessment's findings. A strategy developed through this process should be multidimensional and based on the assessment results. The strategy must also be consistent with and build upon the model's required core strategies and elements: Overarching
Core Strategies and Services
Operationalization of Core Strategies and Services
One key outcome of the assessment and planning process is to enable community agencies and leaders to differentiate between youth gang problems and problems of general delinquency, group delinquency, and crimes associated with adult street gangs or criminal organizations. This differentiation is critically important to developing a relevant youth gang prevention, intervention, and suppression strategy (see Decker and Howell, in press). Use of Technical Assistance Grantees will be able to obtain technical assistance throughout the planning process from OJJDP's National Youth Gang Center. Grantees are expected to use OJJDP's technical assistance at key points in the planning process in an effort to create support and commitment to the model. Potential areas of technical assistance may include data collection, analysis, system design and development, gang definitions, collaborative processes, community mobilization, and the comprehensive gang model. Participation in National Evaluation Applicants must certify their commitment to participating in the national evaluation of the Rural Gang Initiative. As part of this certification, applicants should recognize that the national evaluator will require access to planning meetings and minutes and direct access to key policymakers in their jurisdiction. Applicants must also certify their willingness, if selected, to share assessment data and findings with the national evaluator, including data from a variety of other system components. Policymakers writing in support of applications should indicate their willingness to facilitate proper access to necessary data. Eligibility Requirements Applications are invited from local units of government in rural jurisdictions.3 A local unit of government is defined as an agency or organization within a government structure with jurisdictional responsibilities for the areas affected by the project. Examples include county administrator or executive offices and local sheriffs', probation, and police departments. If the applicant has limited scope of authority within the area affected by the project, agencies with authority for those areas not covered must provide a written verification of their willingness to support the project, or should become a coapplicant. However, the relevant agencies and governmental bodies with jurisdiction in the county must provide certification of their willingness to participate and cooperate with the project and the evaluation. Joint applications are recommended. Applicants must confirm that they have the support of key community and agency leaders4 and are committed to working with the community and local agencies to complete a planning and assessment process addressing the local gang problem that is based on the comprehensive gang model. Joint applications with nongovernment agencies will be considered when one applicant is a local unit of government. Potential partners include local colleges or universities, school administrations, and community-based service providers. At least one applicant must be capable of or provide assurances with regard to accessing law-enforcement-based data, including gang incident data. No matching funds are required under this program. Applicants must describe how key agency leaders, community members, and youth will be involved in the project (e.g.,advisory committee) and must include letters of support for this project and for potential future implementation of the model from key public and private agencies.5 No actual service delivery will be funded during this initial 1-year project period. OJJDP will consider future implementation funding for these projects at the conclusion of this project period based on availability of funds and grantee performance. Applicants should identify existing capabilities or make budgetary provisions for Internet access as a method of accessing technical assistance information. Budgetary provisions should also be considered for data collection or collectors, focus group activities, survey work, computer equipment, overall coordination, and other aspects of the project. Additionally, for budgeting purposes, applicants should anticipate having two to five project staff attend two cluster meetings in Washington, D.C., where they will meet with OJJDP, fellow grantees, the training and technical assistance team, and the national evaluator. The location of these meetings may be changed at a later date. Selection Criteria Applicants will be selected according to the selection criteria outlined below, giving appropriate consideration to geographic diversity. In addition, at least one award will be made to a qualifying tribal community. Problem(s) To Be Addressed (30 points) Applicants must provide a detailed statement of the existing youth gang problems and describe how the problems are currently being tracked and addressed. Applicants must provide assurances and documentation that they are in fact experiencing a significant local youth gang problem. Goals and Objectives (15 points) Applicants must define goals and objectives for the planning process. Objectives should be specific and measurable where possible. It is suggested that applicants provide goals and objectives on the planning process, adopting the comprehensive gang model, accessing training and technical assistance, and participating in the national evaluation. Project Design (20 points) Applicants must present a well-detailed, proposed "plan for planning." Applicants should address the requirements and tasks listed above, along with any other significant issues related to the planning and assessment process design. Applicants should also provide initial thoughts on the applicability of the comprehensive gang model to the jurisdiction's youth gang problem. Management and Organizational Capability (25 points) Applicants' project management structure and staffing must be adequate and appropriate for the successful completion of the project. Applicants must present a management plan that identifies responsible individuals, their time commitment, major tasks, and milestones. Applicants must document evidence of the organization's ability to conduct the project successfully, including staff experience in working with gang issues, such as law enforcement, probation, schools, and gang outreach work. Applicants should clearly indicate that they will be the primary agency or organization designated to lead the planning effort and that they have the support of the community and other public and private agencies, thereby satisfying the collaborative requirements of this model. Staff résumés should be attached, as should letters of support and commitment from other agencies. Budget (10 points) Applicants must provide a budget that is complete, detailed, reasonable, allowable, and cost effective in relation to the project's activities. Format The narrative must not exceed 25 pages in length (excluding forms, assurances, and appendixes) and must be submitted on 8½- by 11-inch paper, double spaced on one side of the paper in a standard 12-point font. This is necessary to maintain fair and uniform standards among all applicants. If the narrative does not conform to these standards, OJJDP will deem the application ineligible for consideration. Award Period OJJDP will award up to four planning and assessment grants of up to $125,000 each for a 1-year budget and project period. Award Amount Up to $500,000 is available for this program. Catalog of Federal Domestic Assistance (CFDA) Number For this program, the CFDA number, which is required on Standard Form 424, Application for Federal Assistance, is 16.544. This form is included in OJJDP's Application Kit, which can be obtained by calling the Juvenile Justice Clearinghouse at 800-638-8736 or sending an e-mail request to puborder@ncjrs.org. The Application Kit is also available online. (See the Introduction for more contact information.) Coordination of Federal Efforts To encourage better coordination among Federal agencies in addressing State and local needs, the U.S. Department of Justice is requesting applicants to provide information on the following: (1) active Federal grant award(s) supporting this or related efforts, including awards from the U.S. Department of Justice; (2) any pending application(s) for Federal funds for this or related efforts; and (3) plans for coordinating any funds described in items (1) or (2) with the funding sought by this application. For each Federal award, applicants must include the program or project title, the Federal grantor agency, the amount of the award, and a brief description of its purpose. "Related efforts" is defined for these purposes as one of the following:
Delivery Instructions All applications and attachments should be mailed or delivered to the Office of Juvenile Justice and Delinquency Prevention, c/o Juvenile Justice Resource Center, 2277 Research Boulevard, Mail Stop 2K, Rockville, MD 20850; 301-519-5535. Note: In the lower left-hand corner of the envelope, the applicant must clearly write "Rural Youth Gang Problems: Adapting OJJDP's Comprehensive Approach." Due Date Applicants are responsible for ensuring that the original and five copies of the application package are received by 5 p.m. ET on August 17, 1998. Contact For further information, contact Jim Burch, Program Manager, Special Emphasis Division, 202-307-5914, or send an e-mail inquiry to burchj@ojp.usdoj.gov. References Caldarella, P., Sharpnack, J., Loosli, T., and Merrell, K.W. 1996. The spread of youth gangs into rural areas: A survey of school counselors. Rural Special Education Quarterly 15(4):18-27. Decker, S., and Howell, J.C. In press. The Gangs, Drugs, and Violence Connection. Washington, DC: U.S. Department of Justice, Office of Justice Programs, Office of Juvenile Justice and Delinquency Prevention. Mays, L.G., Fuller, K., and Winfree, Jr., T.L. 1994. Gangs and gang activity in southern New Mexico: A descriptive look at a growing rural problem. Journal of Crime and Justice XVII (7). National Youth Gang Center. 1997 (August). 1995 National Youth Gang Survey. Washington, DC: U.S. Department of Justice, Office of Justice Programs, Office of Juvenile Justice and Delinquency Prevention. Spergel, I.A. 1995. The Youth Gang Problem: A Community Approach. New York, NY: Oxford University Press. Spergel, I., Chance, R., et al. 1994 (Reprinted 1996). Gang Suppression and Intervention: Community Models. Research Summary. Washington, DC: U.S. Department of Justice, Office of Justice Programs, Office of Juvenile Justice and Delinquency Prevention. Spergel, I., Curry, D., et al. 1994 (Reprinted 1996). Gang Suppression and Intervention: Problem and Response. Research Summary. Washington, DC: U.S. Department of Justice, Office of Justice Programs, Office of Juvenile Justice and Delinquency Prevention. Spergel, I.A., and Grossman, S.F. 1997. The Little Village Project: A community approach to the gang problem. Social Work 42(5):456-470.
1 See "Eligibility Requirements" on p. 7 for the definition of "rural communities" used in this program announcement.
2 For more information on the model, contact the Juvenile Justice Clearinghouse.
3 For the purposes of this project, a rural area or jurisdiction is one that lies outside a Metropolitan Area (MA) as determined by the Office of Management and Budget (OMB) as of June 30, 1996, and that has a total population of no more than 100,000, based on the most recent census data. Tribal governments and small towns and cities may be included in this definition, provided they meet the above criteria. In small jurisdictions where the larger surrounding jurisdiction is responsible for providing any of the necessary human services (probation, law enforcement, social services, etc.), a joint application is recommended. To determine if a jurisdiction is within an MA and therefore ineligible, visit the Census Bureau's Web site.
4 See Spergel, Chance, et al. (1994) for a list of suggested key community agencies and groups to be involved in the comprehensive gang model.
5 See Spergel, Chance, et al. (1994) for suggested agency categories.
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