A Guide To Reducing Crime And Disorder Through Problem-Solving Partnerships

U.S. Department of Justice
Office of Community Oriented Policing Services
www.cops.usdoj.gov
A Guide to Reducing Crime and
Disorder Through Problem-Solving
Partnerships
Karin Schmerler
Matt Perkins
Scott Phillips
Tammy Rinehart
Meg Townsend
Carl Peed, Director
Problem-Solving Tips

Problem-Solving Tips
The following guide was created to assist readers in their efforts to
reduce crime and disorder through problem-solving partnerships. It
may be reproduced and distributed.
This guide was compiled by former COPS staff members Karin
Schmerler, Matt Perkins, Scott Philips, Tammy Rinehart and Meg
Townsend. It draws heavily on previous work by Herman Goldstein,
Rana Sampson, Darrel Stephens, John Eck, William Spelman, the
Police Executive Research Forum and the Home Office.
For more information about COPS, call the COPS Office
Response Center at 800.421.6770.
1100 Vermont Avenue, N.W.
Washington, DC 20530
Web site: www.cops.usdoj.gov
April 1998 (Revised: July 2006)

Contents
Letter from the Director . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii
The Problem-Solving Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Repeat Problems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Community Involvement in Problem-Solving Efforts. . . . . . . . . . . . . . . . . . . . . . . . . 3
The SARA Model: A Useful Tool . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Identifying and Selecting a Problem (Scanning) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Methods of Identifying Problems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Selecting a Problem . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Redefining the Problem. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Identifying Stakeholders for the Selected Problem . . . . . . . . . . . . . . . . . . . . . . . . 8
Sample Problem (Robbery, Fear) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Analyzing the Selected Problem . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Why Analysis is Important . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Asking the Right Questions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Crime Triangle . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Sample Questions for Analyzing Problems. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Resources That Can Help You Analyze Problems. . . . . . . . . . . . . . . . . . . . . . . . . . 18
Responding to a Problem . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
Bucking Tradition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Assessing the Impact on the Selected Problem . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Traditional Measures. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
A Nontraditional Framework. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
Sample Measures That Demonstrate Impact on a Problem. . . . . . . . . . . . . . . . . . 28
Sample Measures That Do Not Demonstrate Impact on a Problem . . . . . . . . . . . 29
Adjust Responses Based on Assessment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
i
Contents

ii Contents
Sample Problem-Solving Initiatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
Gainesville, Florida Convenience Store Robberies. . . . . . . . . . . . . . . . . . . . . . . . . . 31
Mankato, Minnesota Park Problem. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
Redmond, Washington Graffiti Problem . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
Reference List . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
Endnotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
Other Problem-Oriented Guides for Police . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45

iii
Letter from the Director
Letter from the Director
Local law enforcement officers have always solved problems. One of the most
effective problem-solving tools available to local law enforcement agencies is the
model of community policing. This model gives officers a chance to connect with
the communities they serve, to reach out to every member of those communities,
and to build relationships that keep them aware of what's happening as well as
what's going to happen in their neighborhoods.
The community policing model also gives law enforcement officials a chance to
earn the confidence of the community, which may bring to light very specific
problems, giving law enforcement officials the opportunity to prevent crime before
it happens. Rather than reacting to problems after they become crimes, community
policing goes further, leveraging the officers' relationships with the members of
their communities to determine the root causes of a problem, and seeks to prevent
crimes from happening again. COPS calls this the problem-solving approach, and it
has proven effective not only in analyzing and solving crimes, but in reducing crime
overall.
Problem-Solving Tips: A Guide to Reducing Crime and Disorder Through Problem-Solving
Partnerships is intended to serve as a reference for those in all stages of implementing
the problem-solving approach. The guide contains insights into every stage of the
process, most of which are drawn from the experiences of law enforcement officers
in the field. The COPS Office has working relationships with more than 12,600
law enforcement agencies representing some 650,000 officers. COPS is proud to
make the experiences of those agencies and officers available and accessible to the
law enforcement community at large, so that we don't all have to make a mistake to
learn from one, and solutions and successes are shared by all.

A Guide To Reducing Crime And Disorder Through Problem-Solving Partnerships

1
Since the mid-1980s,
communities and policing
agencies of all types have
successfully used the problem-
solving approach to address an
endless variety of problems.
The Problem-Solving Approach
Traditionally, police have handled each incident or call for service
as a separate and fairly unique occurrence. For example, most
commercial burglaries have been addressed individually: an officer
has taken a report from the victim and attempted to identify the
offender and recover stolen property. The responding officer
might have also counseled the victim in general crime prevention
techniques and attempted to link a series of commercial burglaries
to one offender. But the incidents have not typically been analyzed
as a group to learn why and how the crimes have occurred
repeatedly, and how they could have been prevented.
The COPS Office seeks to build on the problem-solving
approaches many communities have used in recent years. These
approaches involve analyzing groups of related incidents that
comprise a specific crime problem, so that comprehensive,
tailored strategies to prevent future crime can be developed. These
problem-solving strategies rely less on arresting offenders and
more on developing long-term ways to deflect offenders, protect
likely victims and make crime locations less conducive to problem
behaviors.
Intended as a reference for those who are interested in
implementing a problem-solving approach, this guide contains
information and insights into the process. It will take you step by
step through solving problems, offer examples of problem-solving
from the field, and provide links to additional resources.
The emphasis on problem-solving as an effective policing
strategy stems from pioneering work on problem-oriented
policing done by Herman Goldstein in the late 1970s and
from experiments in the early 1980s in Madison, Wisconsin;
Baltimore County, Maryland; and Newport News, Virginia. In
Newport News, police practitioners, working in concert with
researchers and community members, demonstrated that crime

2 Problem-Solving Tips
and disorder problems could be significantly reduced by
implementing tailored responses directly linked to the findings
of comprehensive problem analyses. Police and community
members in Newport News were able to reduce burglaries
in a targeted apartment complex by 34 percent, reduce
prostitution-related robberies in the target district by 39
percent, and reduce thefts from vehicles in two downtown
areas by over 50 percent.
1
From this effort and other early
work on problem-oriented policing, community policing
advocates recognized the effectiveness of the problem-solving
approach and incorporated it into the community policing
philosophy.
Since the mid-1980s, communities of all sizes and policing
agencies of all types–including sheriffs' departments, state
police, highway patrols and transit police–have successfully
used the problem-solving approach to address an endless
variety of problems. From these efforts, it has become clear
that problem-solving is critical to the success of community
policing efforts. Initiatives that lack an analytical component
often improve police-community relations but frequently have
little impact on specific crime and disorder problems.
Repeat Problems
Taking a problem-solving approach to addressing a specific
crime problem calls for a broad inquiry into the nature of
the particular problem. As part of that inquiry, many police-
community problem-solving teams have found it useful to
analyze the patterns of repeat calls relating to specific victims,
locations and offenders. Research has shown that a relatively
small number of locations and offenders are involved
in a relatively large amount of crime. Similarly, a small
number of victims account for a relatively large amount of
victimization. For example, researchers have found that more

3
Research shows that a small
number of victims account for
a relatively large amount of
victimization.
than 60 percent of calls for service in some areas come from
only 10 percent of the locations.
2
According to one study,
approximately 50 percent of crime victims in England had
experienced repeat victimization, and 4 percent of victims,
the "chronically victimized," accounted for 44 percent of
all the reported crime.
3
A large city in the Southwest United
States also found that repeat victims–in this case commercial
establishments–accounted for a disproportionate number
of burglaries in the jurisdiction. In this city, 8 percent of
businesses were burglarized two or more times during the
course of one year and accounted for at least 22 percent
of all business burglaries. This pattern was also seen in
Jacksonville, Florida in an analysis of construction site thefts
and burglaries for 55 homebuilders. Over a 10 month period
in 2004, 20 percent of the builders experienced 85 percent of
all the reported thefts and burglaries at construction sites.
4
Community Involvement in Problem-Solving Efforts
Engaging the community without problem-solving provides no meaningful
service to the public. Problem-solving without [partnerships] risks
overlooking the most pressing community concerns. Thus the partnership
between police departments and the communities they service is essential
for implementing a successful program in community policing.
5
Community leaders, researchers and police officials recognize
the need for a strong, well-articulated role for community
members in community policing efforts. They know that
the police alone cannot substantially impact crime and
advocate for the community as a full partner in preventing
and responding to problems. Community involvement is
an integral part of any long-term, problem-solving strategy.
At the most basic level, the community provides policing
agencies with invaluable information on both the problems

of concern to them and the nature of those problems.
Community involvement also helps ensure that policing
agencies concentrate on the appropriate issues in a manner
that will create support. In addition, collaborative work
involving police and community members provides the
community with insight into the police perspective on specific
crime and disorder problems.
Traditionally, community involvement in crime prevention
and reduction efforts has been limited to serving as the
"eyes and ears" for police or helping implement responses.
The collaborative problem-solving approach allows for
much greater and more substantive roles for community
members. For example, students in a high school with a drug
use problem on school grounds might survey their peers to
determine the extent of the problem and also help design
responses to the problem.
The SARA Model: A Useful Tool
As part of the problem-oriented policing project in Newport
News, officers worked with researchers to develop a problem-
solving model that could be used to address any crime or
disorder problem. The result was the SARA model, which has
four stages: Scanning, Analysis, Response and Assessment.
These stages are discussed in greater detail below. Since the
mid-1980s, many officers have used the SARA model to guide
their problem-solving efforts. Although the SARA model is
not the only way to approach problem solving, it can serve as
a helpful tool.

5
Identifying and Selecting a Problem (Scanning)
Identifying and Selecting a Problem
(Scanning)
A problem can be defined as:
• A cluster of similar, related or recurring incidents rather
than a single incident; a substantive community concern;
[or] a unit of police business.
6
• A type of behavior (loitering, theft of autos); a place
(Pinecrest Shopping Mall); a person or persons (a repeat
perpetrator of domestic violence, repeat burglary victims);
or a special event or time (an annual parade, payday
robberies). A problem also may be a combination of any
of the above.
7
• Informally, a problem can be thought of as two or more
incidents similar in one or more ways that is of concern
to the police and a problem for the community.
Methods of Identifying Problems
Problems may come to your attention in a variety of ways.
These include:
• Routinely analyzing calls for service, crime incident
data and other agency records for patterns and trends
involving repeat locations, victims and offenders. (Police
agencies may need to look at calls going back six months
to several years to get an accurate picture of repeat
incidents for some types of problems.)
• Mapping specific crimes according to time of day,
proximity to certain locations and other similar factors;
• Consulting officers, police supervisors, detectives,
midlevel managers and command staff.
• Reviewing police reports.
• Surveying community residents, business owners, elected
officials or students.

• Reviewing citizen complaints and letters.
• Participating in community meetings.
• Reviewing information from neighborhood associations
and nonprofit organizations (local and national).
• Consulting social service and governmental agencies
• Following media coverage and editorials.
Selecting a Problem
It is important that both community members and police
have input into prioritizing problems once they have
been identified. Sometimes, the problems of concern to
community members are different from what the police
expect. Consulting community members about their priorities
not only ensures that community concerns are addressed
but enhances the problem-solving effort at every step of the
process. Citizen input can be solicited in a number of ways,
including surveys, community meetings and focus groups
(e.g., a group of students or a cross-section of neighborhood
residents). Police input into the selection of a problem is
also very important, because the police have expertise and
information about problems that citizens do not typically
possess.
In selecting a problem on which to focus from among the
many problems your community faces, you may want to
consider the following factors:
8
• The impact of the problem on the community including
the police–its size and costs
• The presence of any life-threatening conditions
• Community interest and degree of support likely to exist
for both the inquiry and subsequent recommendations.
A problem can be thought
of as two or more incidents
similar in one or more ways
that is of concern to the
police and a problem for the
community.

7
• The potential threat to constitutional rights–as may occur
when citizens take steps to limit the use of the public
way, limit access to facilities, or curtail freedom of speech
and assembly
• The degree to which the problem adversely affects
relationships between the police and the community
• The interest of rank-and-file officers in the problem and
the degree of support for addressing it
• The concreteness of the problem, given the frustration
associated with exploring vague, amorphous complaints
• The potential that exploration is likely to lead to some
progress in dealing with the problem.
Redefining the Problem
Once a problem has been selected, it may need to be
redefined as more information about the problem comes
to light. This is to be expected. As you work through the
problem-solving process you may discover that the problem
you started with is too broad in scope. Alternatively, you may
determine that its actually a symptom of another problem
that really should be your focus. It is even possible that what
you first perceived as a problem is not really a problem at
all once you've taken a closer look. It is common for the
problem to need to be redefined as you move through the
problem-solving process., and this is one of the reasons why
it's best not to start implementing responses until the problem
has been fully analyzed.
It is important that citizens
and police both help prioritize
problems once they have been
identified.

Identifying Stakeholders for the Selected Problem
Stakeholders are private and public organizations, types or
groups of people (senior citizens, homeowners, merchants,
etc.) that will benefit if the problem is addressed or may
experience negative consequences (injuries, lack of services,
loss of revenue, increased enforcement, etc.) if the problem is
not addressed. Stakeholders may include:
• Local social service and government agencies with
jurisdiction over the problem or an interest in an aspect
of the problem
• Victims of the problem, and/or associations representing
victims
• Neighbors, coworkers, friends and relatives of victims, or
neighborhood residents affected by the problem
• Agencies or people that have some control over offenders
(parents, relatives, friends, school officials, probation and
parole, building management, etc.)
• Commercial establishments adversely impacted by the
crime or disorder problem
• National organizations or trade associations with an
interest in the problem (Students Against Drunk Driving
for an underage drinking problem).
You should identify as many stakeholders as possible for the
problem you select. Each stakeholder may bring different
knowledge and different leverage for impacting the problem
to the effort. The more stakeholders that are identified, the
more resources you will have to address the problem.
However, some communities have found that the problem-
solving effort progresses most efficiently if only two or three
stakeholders–a core group–work on the problem throughout
the project. Other, more peripheral, stakeholders often have
something to contribute at specific stages of the project, but
not throughout the entire effort.

9
Following is a brief description of a sample problem and a
listing of potential stakeholders and partners.
Sample Problem (Robbery, Fear)
A mid-sized eastern city of 35,000, with a relatively low crime
rate, had experienced a number of robberies of food delivery
people. On average, one delivery person had been robbed
per month. A number of pizza and other fast-food stores
refused to deliver to a mostly low-income and predominantly
black neighborhood where many of the robberies were
perceived to be taking place. Restaurant representatives said
that stores decided not to deliver food to the area because an
increasing number of delivery people had been attacked on
the job, and they feared making deliveries in high-crime areas.
A resident of the neighborhood where deliveries were not
being made complained about the lack of delivery service and
started a petition to change the policy. The city council began
considering a proposal to require delivery to all residents,
regardless of their location, and the story was covered in local
and regional newspapers.
Stakeholders
(In addition to the policing agency)
• Potential home-delivery customers in "no delivery"
neighborhood, signers of the petition
• Fast food delivery people
• Fast food restaurant management (local franchises)
• National pizza delivery chains
• National Association of Pizza Operators
• Local NAACP chapter
• Local legislators
• Local media

11
Analyzing the Selected Problem
Why Analysis is Important
Comprehensively analyzing a problem is critical to the success
of a problem-solving effort. Effective, tailor-made responses
cannot be developed unless you know what is causing the
problem.
Yet, many people essentially skip the analysis phase of the
SARA model. The reasons for this are varied, but include
the following: the nature of the problem sometimes falsely
appears obvious at first glance; there may be tremendous
internal and external pressure to solve the problem
immediately; the pressure of responding to calls does not
seem to allow time for detailed inquiries into the nature
of the problem; investigating or researching the problem
does not seem like "real" police work; and supervisors may
not value analytical work that takes up time but does not
produce arrests, traffic citations or other similar traditional
measures of police work. Also, in many communities, a
strong commitment to the old way of viewing and handling
problems prevents police and community members from
looking at those problems in new and different ways.
Despite these pressures and perceptions, problem-solvers
must resist the urge to skip the analysis phase, or they risk
addressing a problem that doesn't exist and/or implementing
solutions that are ineffective in the long run.

For example, computer-aided dispatch data in one
southeastern police department indicated that there was a
large auto theft problem at a local shopping mall. Yet, after
a sergeant reviewed incident reports and follow-up records
on cancellations, it became clear to him that many of the
reported auto thefts were actually cases in which shoppers
had misplaced their cars and then mistakenly reported them
stolen. If he had not analyzed the problem, the first instinct
of the sergeant probably would have been to implement an
auto theft prevention effort, which would have had little or
no impact on the misplaced car problem. After analyzing
the problem, it was obvious that the auto theft problem was
not as large as it had appeared, and what was needed was a
combination of a tailored auto theft prevention effort and
better marking and distinction of the mall parking lots.
Asking the Right Questions
[The] first step in analysis is to determine what information
is needed. This should be a broad inquiry, uninhibited by
past perspectives; questions should be asked whether or
not answers can be obtained. The openness and persistent
probing associated with such an inquiry are not unlike the
approach that a seasoned and highly regarded detective would
take to solve a puzzling crime: reaching out in all directions,
digging deeply, asking the right questions. Invited to
participate in such an exercise, groups of experienced police
personnel will pose a wide range of appropriate questions.
They also will acknowledge that, except for some hunches,
they usually do not have the answers to the questions they
pose.9
Comprehensively analyzing
a problem is critical to the
success of a problem-solving
effort.

13
Crime Triangle
Generally, three elements are required to constitute a crime
in the community: an offender, a victim, and a crime
scene or location.
10
Problem solvers have found it useful in
understanding a problem to visualize a link between these
three elements by drawing a triangle.
As part of the analysis phase, it is important to find out as
much as possible about all three legs of the triangle. One way
to start is by asking Who? What? When? Where? How? Why?
and Why not? about each leg of the triangle.
11
Victims
It is important to focus on the victim side of the triangle. As
mentioned earlier, recent research has shown that a small
number of victims account for a large amount of crime
incidents. In addition, researchers in England found that
victims of residential burglary, domestic violence and other
crimes are likely to be revictimized very soon after the first
victimization – often within a month or two.
12, 13
Effective
interventions targeted at repeat victims can significantly
reduce crime.
Problem-solvers must resist
the urge to skip the analysis
phase, or they risk addressing
a problem that doesn’t exist
or implementing ineffective
solutions.

For example, according to one study of residential burglary
in the Huddersfield Division of the West Yorkshire Police
in England, victims were four times more likely than non-
victims to be victimized again, and most repeat burglaries
occurred within six weeks of the first. Consequently, the
Huddersfield Division developed a tailored, three-tiered
response to repeat burglary victims, based on the number
of times their homes had been burglarized. Initial reports
showed a 20 percent reduction in residential burglary and no
evidence of displacement.14 In fact, commercial burglaries in
the area also were reduced, even though that problem was not
being targeted. The police did, however, experience difficulties
identifying repeat victims, because their database systems were
not designed for this type of inquiry.
Offenders
A fresh look at the offender side of the triangle is critical
to a problem-solving effort. In the past, much emphasis
has been placed on identifying and apprehending offenders.
While this can reduce a specific crime problem, particularly if
the apprehended offenders account for a large share of the
problem, the reduction is often temporary, as new offenders
replace the original offenders.
The problem of replacement offenders is particularly acute in
money-making activities such as drug sales, burglary, robbery,
prostitution, etc. For this reason, policing agencies have found
it helpful to learn more about why offenders are attracted
to certain victims and places, what specifically they gain by
offending, and what, if anything, could prevent or reduce
their rates of offending.
Effective interventions
targeted at repeat victims can
significantly reduce crime.

15
Crime Environment
It is equally important to analyze the location side of the
triangle. As mentioned earlier, certain locations account for
a significant amount of all criminal activity. An analysis of
these locations may indicate why they are so conducive to
a particular crime and point to ways in which they can be
altered to inhibit offenders and protect victims. For example,
placing ATM machines inside bank lobbies may reduce
the amount of information an offender has about victims
(that they actually collected money from the bank, that
they put their money in their left-front pocket) and reduce
the vulnerability of victims who have their backs turned to
potential offenders while using ATM machines.
Handlers, Guardians and Managers
There are people or things that can exercise control over
each side of the triangle so that crime is less likely. Offenders
can sometimes be controlled by handlers such as the police
and probation and parole officers. Targets and victims can
be protected by the presence of guardians. Places can also
have guardians or managers influencing both offenders and
victims. Successful problem solving relies on understanding
not only how all three sides of the triangle interact, but also
how offenders, victims and places are, or are not, effectively
controlled by others.
15

Sample Questions for Analyzing Problems
Agencies should make a list of questions about the nature
of the problem that need to be answered before new and
effective responses can be developed. The COPS-funded
Problem-Oriented Policing Guide (POP Guide) Series is a
valuable resource for examples of problem-specific analysis
issues.
Following are 15 sample questions about the robbery problem
described earlier in the "Identifying Stakeholders" section of
this guide (p. 10).
Victims
1. Who were the victims (age, race, gender)? For whom were
they working? What was the nature of the attacks?
2. What time of day were the victims attacked?
3. Have any food delivery people been attacked more
than once? Have the food delivery people from certain
restaurants been attacked more often than others?
4. How fearful are the delivery people? What areas are they
afraid of? Do they have any suggestions on ways to make
their job safer? Are they issued any security devices or
provided with safety training?
5. What have other jurisdictions facing similar problems
done to increase the safety of food delivery people? What
policies have been the most effective and why?
Crime Location/Environment
6. Where are the robberies taking place–at the delivery
site, en route to the delivery site, or near the fast food
establishment? How closely do the places of attack
conform to the areas where delivery people will not go?

17
7. Of the robberies that take place away from the fast
food establishment, what is the distribution of places in
which the robberies have occurred (apartment buildings,
townhouses, detached houses, public or assisted housing,
motels, parking lots, office buildings, etc.)?
8. Are the delivery people robbed near their vehicle or away
from it? What type of vehicle do the delivery people
drive? Is it identified as a fast food delivery vehicle?
9. Where is the food store located in relation to the "non-
delivery" neighborhood? What routes do delivery people
take to deliver the food?
10. Are there any environmental similarities in the specific
locations of the robberies (lighting, shrubbery, isolated or
blind areas)?
Offenders
11. What is the method of attack? Are any patterns evident?
What weapons have been used and in how many attacks?
12. How do the offenders select their victims? What makes
some victims more attractive than others? What makes
non-victims less attractive?
13. Are the offenders placing orders to lure delivery people to
them or randomly meeting up with their victims? If the
offenders are placing orders to rob delivery people, are
the orders being placed in the name of real customers or
under false names?
14. How much money did offenders steal during a typical
incident? Was anything else stolen?
15. Do the offenders live in the neighborhood(s) where
the robberies are occurring? If so, are they known to
residents who might have some influence over them?

(For additional information on analyzing problems, see the
Problem-Oriented Policing Guides and Crime Analysis and
Crime Mapping Information Clearinghouse, both published by the
COPS office.)
Resources That Can Help You Analyze Problems
A number of tools can assist you in capturing data and other
information about crime and disorder problems.
• Crime analysts. Crime analysts can provide a great deal
of assistance in collecting and analyzing data and other
information about specific crime and disorder problems.
• Records management system. These type of systems
can help policing agencies collect, retrieve and analyze
information about problems. In particular, it should be
able to quickly and easily help users identify repeat calls
for service relating to specific victims, locations and
offenders.
• Mapping/geographic information systems. These
systems can illuminate patterns, help identify problem
areas, and show potential links between crime hot spots
and other types of establishments (ATM machines, liquor
stores, etc.).
• Technical assistance. Criminal justice practitioners who
specialize in using problem solving to address specific
crime problems–such as auto theft, robbery, street-level
drug dealing, etc.–can provide valuable assistance to
policing agencies and community members. In addition,
non-criminal justice personnel with backgrounds in a
variety of areas can also aid in problem-solving efforts.
For example, a mental health expert may be able to assist
in assessing a community's current response to people
with mental illness and help improve that response.

19
• Resident/business surveys. These surveys can help
police and community-based entities identify and analyze
problems, gauge fear levels, identify preferred responses,
and determine the real and perceived effectiveness
of problem-solving efforts. These surveys also can
help determine general and repeat victimization rates,
particularly for under-reported, low-level crimes.
• Crime environment surveys. These instruments can
help policing agencies and community-based entities
systematically assess the physical environment of problem
locations and the ways in which the specific characteristics
of the locations lend themselves to crime and disorder.
• Interviews with victims and offenders. Systematic
and structured interviews with victims and offenders
can provide important insights into the dynamics of
a particular crime problem. For example, offender
interviews conducted with street robbers in one locality
provided police with important information regarding the
nature of victim selection and other aspects of the crime
that could be used to prevent future victimizations.
would be necessary to track repeat victimization.
• Training. Problem-solving training, with an emphasis on
analysis, can help police and community members build
and enhance problem-solving skills.
• Laptop computers/mobile data computers. When
housed in patrol cars, the latest generation of laptop
computers can provide officers with direct access to
useful and timely crime data and the ability to analyze
crime problems and produce maps while on patrol.
• Internet. Using online legal and business research
services, police personnel and community members can
quickly learn who owns property that has become a haven
for drug sales, identify pending legislation and current
laws affecting a particular crime problem, and review

news coverage from communities facing similar problems.
Similarly, police personnel and community members can
use the Internet to exchange information with others who
have addressed similar problems and to gain access to
networks specifically devoted to community policing and
problem-solving.
Systematic and structured
interviews with victims and
offenders can provide important
insights into the dynamics of a
particular crime problem.

21
Responding to a Problem
After a problem has been clearly defined and analyzed, one
confronts the ultimate challenge in problem-oriented policing:
the search for the most effective way of dealing with it.
16
The third stage of the SARA model focuses on developing
and implementing effective responses to the problem. Before
entering this stage, an agency must be sure it has thoroughly
analyzed the problem. The temptation to implement a
response and "start doing something" before analysis is
complete is very strong. But quick fixes are rarely effective in
the long-term. Problems will likely persist if solutions are not
tailored to the specific causes of the problem.
17
To develop tailored responses to crime problems, problem-
solvers should review their findings about the three sides of
the crime triangle–victims, offenders and the crime location–
and develop creative solutions that will address at least two
sides of the triangle.
18
They should approach the development
of solutions without any preconceived notions about what
should be done. Often the results of the analysis phase point
police and citizens in unexpected directions. For example,
suppose the policing agency that faced the fast food robbery
problem described earlier found that:
• 14 delivery people were robbed over the past year.
• Nine of the robberies occurred between the hours
of 10:00 p.m. and 2:00 a.m. on Thursday, Friday and
Saturday nights.
• Four of the fast food delivery stores accounted for 10 of
the robberies; staff working at two of these four stores
experienced seven of the robberies.
• Staff at the two stores that were victimized the most
deliver until 2:00 a.m., while the other two stores stop
delivering at 12:00 a.m.

• In seven of the robberies, police were unable to locate
the ordering customer, indicating that orders were placed
under false names or false addresses.
• Large outdoor parties, mostly attended by youth in
their late teens, are held each weekend night in several
common areas near residential units. The party areas are
in the vicinity of the robberies. Alcohol is served at the
parties, and there is some concern among residents about
noise and underage drinking at the parties.
• Fast food delivery staff recall that a number of the
robberies were committed by teenagers who appeared to
have been drinking.
• Several delivery staff also recall seeing or passing a group
of teenage partiers on foot before they were robbed.
• In 11 of the robberies, the offenders stole less than $40.
In the other three robberies, between $40 and $60 was
stolen.
A tailored response to this problem might include:
• An agreement by the two most victimized stores to stop
delivery at midnight and require customers to pick up
their take-out between midnight and 2:00 a.m..
• An agreement by the stores to ask customers what bill
denomination will be used to pay for the food, so that
delivery people could carry the minimum amount of
change required for the transaction. Exact change would
be requested, but not required.
• An agreement by the stores to use an enhanced Caller ID
system to cross-check names with telephone numbers. If
the customer’s name did not match the number and name
of the caller displayed by Caller ID–possibly because the
person placing the order was a guest of the residence–
food store personnel would look up the resident's address

23
Often the results of the analysis
phase point police and citizens
in unexpected directions. From
the outset, one is constantly
battling a natural tendency to
revert to traditional responses.
to confirm that the telephone number matched the
address. The resident would be called back to confirm the
order.
• An agreement by the stores to implement a policy not
to deliver an order if it means walking by a large crowd
that is loitering in the area. If a delivery person is unable
to deliver an order for this reason, the person will return
to the store, call the customer and request that he or
she meet the delivery person at the nearest curb past the
loitering group.
• An agreement by the resident who started the petition
for food delivery service to the neighborhood to
communicate the nature and reason for the new delivery
policies (with the exception of the Caller ID check)
to other residents. The petitioner would convey this
information at a neighborhood meeting and through
fliers delivered to each resident. At several of the teenage
parties, residents would inform the youth in attendance
that delivery people would no longer carry more than $10
in change (and often much less) at all times.
Bucking Tradition
From the outset, one is constantly battling a natural tendency
to revert to traditional responses.
19
Having relied on traditional responses (areawide sweeps or
arrests, saturation patrol, etc.) in the past, it is only natural
that policing agencies will gravitate toward these same tactics
to address problems in the future–even if these tactics have
not been especially effective or sustainable over the long-term.

For example, in the case of the fast food robberies, it is easy
to see how police might have decided to step up car or foot
patrols in the problem area on weekend nights between the
hours of 10 p.m. and 2 a.m. But this response would have
been relatively costly to the police department. Creative
responses that go beyond the criminal justice system and
focus on preventing future occurrences are generally the most
successful.
Citizens and police are often tempted to implement programs
or responses used in other communities. Although it can be
very useful to learn how other communities have successfully
addressed similar problems (and policing agencies are
encouraged to research other approaches as part of their
analysis), caution should be used in adopting off-the-shelf
solutions, unless the situation is strikingly similar.
20
For example, the police facing the fast food robberies might
have been inclined to suggest that public works increase
lighting in the problem area, because this is one of the ways
other communities have successfully addressed robbery
problems. But unless the robberies have occurred in areas that
are dimly lit, this strategy probably would have little effect on
the fast food robbery problem.
The key to developing tailored responses is making sure the responses
are very focused and directly linked to the findings from the analysis
phase of the project.
From the outset, one is
constantly battling a natural
tendency to revert to traditional
responses.

25
Assessing the Impact on the Selected Problem
Assessing the Impact on the Selected
Problem
Over the past 20 years, it has become clear to many in
policing that both the traditional approaches to addressing
crime, fear and other problems and the measures of
effectiveness have fallen short of many people's expectations.
This has caused a significant number of police departments to
seek new approaches to addressing old problems. It has also
caused many police departments to ask whether their work
really makes a difference beyond dealing with the immediate
incident.
21
Traditional Measures
A number of measures have traditionally been used by
policing agencies and community members to assess
effectiveness. These include numbers of arrests, levels of
reported crime, response times, clearance rates, citizen
complaints and various workload indicators, such as calls for
service and the number of field interviews conducted.
22
Several of these measures may be helpful to you in assessing
the impact of a problem-solving effort, including calls for
service related to the problem (especially a reduction in
repeat calls for service involving specific locations, victims
or offenders); changes in the incidence of reported crime;
and changes in levels of citizen complaints. Other traditional
measures, such as arrests and number of field interviews
conducted, may not be that useful for your problem-solving
effort, unless these measures can be directly linked to a long-
term reduction in the harm associated with the targeted crime
problem.

Even reductions in calls for service and citizen complaints
may not be the best indicators of whether you are positively
impacting a problem, because, in some instances, these
measures may actually increase as the result of a problem-
solving effort. In some cases, such an increase may be a good
outcome, if it means that residents feel more comfortable
filing complaints or believe their calls will be taken seriously.
However, when a problem-solving effort does result in
increased arrests or increased calls for service, policing
agencies should look carefully at these outcomes. Were they
the intended result of the initiative?
A Nontraditional Framework
Assessing the impact of a problem-solving effort may require
using a nontraditional structure for determining effectiveness.
One such framework developed by Eck and Spelman
identifies five different levels or types of positive impact on
problems. They are:
23
1. Total elimination of the problem
2. Fewer incidents
3. Less serious or harmful incidents
4. Better handling of the incidents/an improved response to
the problem
5. Removing the problem from police consideration
(shifting the handling to others more able to address the
problem).

27
A sixth positive impact also has been suggested:
6. People and institutions affected by the problem are
left better equipped to handle a similar problem in the
future.
24
A number of nontraditional measures will shed light on
whether a problem has been impacted. For specific examples
of problem-solving, see the POP Guide Series, and especially
those on:
• Bullying in Schools
• Drunk Driving
• Graffiti
• Juvenile Runaways
• Researching a Problem
• Shoplifting
• Underage Drinking
Some of the measures listed above may be appropriate to
your problem-solving effort. Others not listed above may be
more appropriate. After you have analyzed the problem, you
may wish to change the measures initially selected or revise
the measures. The measures you select will depend on the
nature of the problem selected, preferences of the police and
the community, and the ability of your jurisdiction to collect
the necessary data both before the project begins and after it
has been in place for some time.
The key is focusing on measures that demonstrate impact on the targeted
problem.

Sample Measures That Demonstrate Impact on a
Problem
• Four crack houses in the 12-block area were closed, and
measurements indicated that there was no displacement
of drug dealing in the surrounding five-block area.
Calls for service relating to street-level drug dealing in
the target area were reduced from an average of 45 per
month to eight per month. The number of residents who
reported witnessing drug deals during the previous month
was reduced from 65 percent before the effort to 10
percent 4 months after the effort.
• Prior to the effort, 40 percent of those victimized twice
by burglars were revictimized within a 6-month period.
After the effort, only 14 percent were revictimized.
Overall, burglaries in the targeted area were reduced from
68 in one year to 45 in the next.
• Because the problem-solving effort interrupted juvenile
gun markets for more lethal semiautomatic firearms,
the number and seriousness of injuries from drive-by
shootings was significantly reduced, even though the
number of drive-bys declined only slightly. Prior to the
effort, there were 52 drive-by shootings in the city, 21 life-
threatening injuries and five deaths. After the effort, there
were 47 drive-by shootings, eight life-threatening injuries
and no deaths.
• In the year prior to the effort, police received an average
of 50 complaints per month relating to disputes between
neighbors. An average of 10 of the monthly complaints
were resolved by one visit from a police officer, but
approximately 40 of the calls were placed by residents
at 16 repeat problem locations. Since the effort was
implemented, the department now receives an average of
15 complaints per month. Two repeat problem locations
remain, but they account for less than 25 percent of the
complaints received each month.

29
Sample Measures That Do Not Demonstrate Impact on
a Crime or Disorder Problem
• Five police-community meetings were held over the
course of the one-year project. (Conclusions regarding
the impact on the problem can't be drawn from this
measure.
• Officers conducted home security checks for 43 residents
in the targeted housing development. (While it would be
important to document the number of home security
checks, it would be more important to know whether
burglaries were reduced as a result of the initiative.)
• Officers and community members participated in a
neighborhood cleanup and removed 150 pounds of trash.
(This information doesn't necessarily indicate a reduction
in levels of targeted crime or disorder problems, and a
one-time cleanup may be a temporary improvement. It
would be more important to show that the targeted crime
and disorder problem was reduced as a result of, or in
conjunction with, the cleanup.)
• Police seized over 10 kilos of cocaine during the initiative,
which targeted narcotics activity in the southwest district.
(This result doesn’t indicate whether street-level drug
sales and any associated problems – such as prostitution,
loitering, graffiti, trash and intimidation of residents
– were reduced.)
Adjust Responses Based on Assessment
If the responses implemented are not effective, the
information gathered during analysis should be reviewed.
New information may need to be collected before new
solutions can be developed and tested.
25
Assessing the impact of a
problem-solving effort may
require using a nontraditional
structure for determining
effectiveness.

31
Sample Problem-Solving Initiatives
These examples illustrate
the use of the SARA model
and feature responses that
are linked to comprehensive
problem analyses. The COPS
Office is not promoting a
particular set of responses to
problems and acknowledges
that there is room for
disagreement regarding the
responses selected and their
relative impact.
Sample Problem-Solving Initiatives
The COPS Office seeks to facilitate new, innovative
problem solving efforts tailored to an in-depth analysis of
a community's specific problem. In order to build on the
concepts presented in this guide, three examples are presented
here that illustrate the use of the SARA model and the kinds
of analytical efforts we hope to foster.
Example 1: Gainesville, Florida26
Change in Evening Staffing Policies Reduces Robberies of Gainesville,
Florida, Convenience Stores by 82 percent.
Scanning
In the spring of 1985, the city of Gainesville experienced
what seemed to be an exceptionally large number of
convenience store robberies.
Analysis
Because the police did not keep automated records specifically
on convenience store crime at that time, department
personnel manually searched through five years worth of files
to obtain more information about the problem. From this
effort, the police determined that 45 of the 47 convenience
stores located in Gainesville had been robbed at least once
between 1981 and 1986. They also learned that although
convenience stores accounted for only 18 percent of business
establishments such as fast-food stores, motels/hotels, service
stations and liquor stores, they accounted for 50 percent of
business robberies. Many of the 45 convenience stores had
been robbed repeatedly: nearly half had been robbed five or
more times, and several had been robbed at least 10 times.
The police also learned other important facts that provided
them with insight into the conditions that facilitated the

robberies. They found that 75 percent of the convenience
store robberies took place between the hours of 7 p.m.
and 5 a.m., only one clerk was present in 92 percent of the
robberies, and the robber waited until the clerk was alone in
85 percent of the robberies.
To obtain more information about the problem of
convenience stores generally, Gainesville officials contacted
the International City Managers Association, the International
Association of Chiefs of Police, the National League of
Cities, the National Association of Convenience Stores, the
National Criminal Justice Reference Service, and several
other national organizations. From these inquiries, they
learned that several municipalities had passed ordinances
requiring convenience stores to implement a variety of crime
prevention policies. The effectiveness of these local laws
varied. The most successful ordinance, adopted in Kent,
Ohio, required the convenience industry to post two clerks
in stores between the hours of 11 p.m. and 6 a.m. Three
years after the Kent ordinance was passed, convenience store
robberies in that community had decreased 74 percent.
To determine whether having two clerks on duty might
prevent robberies in Gainesville, officials analyzed the robbery
rates of two local stores that operated within 100 yards of
each other but had different staffing policies. They found
that the store that consistently had two clerks on duty on a
24-hour basis had never been robbed, while the competing
store, which was always staffed by only one clerk, had been
robbed 11 times. The Gainesville police chief then asked a
researcher at the University of Florida to corroborate the
department's conclusions about convenience store robberies
in Gainesville. From interviews with 65 convenience store
robbers imprisoned in Florida, the researcher confirmed
that one of the most desirable characteristics of a potential
robbery site was that only one clerk would be on duty. (The
only characteristic rated more desirable was "easy access/

33
getaway" to and from the robbery site.)
Response
Following their analysis of the problem, Gainesville city
officials worked with representatives of the convenience
store industry for approximately one year to institute policies
that would reduce the robberies. During this period, the
industry suggested developing voluntary compliance crime
prevention policies, but these policies did not materialize. In
particular, the convenience store industry resisted instituting
a two-clerk policy. Two public hearings were held by the city
to gain community input on how the problem should be
addressed. In July 1986, the Gainesville City Commission
passed an ordinance that required stores to provide a clear
outside view of their cash register areas, post large signs
informing customers that stores used drop safes and limited
the cash available to clerks, and train employees who work
evening shifts in robbery prevention. At the request of
the convenience story industry, a two-clerk policy was not
mandated by the law. Rather, a resolution was attached to
the legislation stipulating that unless the convenience store
industry could reduce robberies at least 50 percent during
the 240 days following passage of the law, a two-clerk
requirement would be imposed. Convenience store robberies
increased 130 percent during the next 240 days, and the two-
clerk policy was implemented in Gainesville in the spring of
1987.
Assessment
Robberies of Gainesville convenience stores declined 82
percent between 1986, when there were 61 robberies, and
1993, when there were 11. The number of serious injuries
related to convenience store robberies also was greatly
reduced. Between 1981 and 1986, there was one homicide
and 18 serious injuries; between 1987 and 1993, there were no
Officials found that the store
that consistently had two clerks
on duty on a 24-hour basis
had never been robbed–while
the competing store, which
was always staffed by only
one clerk, had been robbed 11
times.

homicides and only one serious injury.
Example 2: Mankato, Minnesota 27
Minnesota Police Reclaim Park for Use by Law-abiding Citizens
Scanning
A park in Mankato, Minnesota, had become a popular
gathering, drinking and socializing spot for a group of car
devotees who called themselves "Motorheads." Motorhead
parties in the park began each day around noon and would
draw 300 to 400 people by 10 p.m. Party-goers were
unruly and tormented other park users–typically citizens
who gathered for reunions or games at the park's baseball
diamond, although these activities occurred less and less. The
Motorhead parties were linked to a number of problems,
including assaults, public and juvenile drinking, public
urination, suspected drug dealing, and $15,000 worth of
criminal property damage to the park over several years. To
respond to the problem, police tried a number of approaches,
none of which worked very well. These approaches included
police park patrols, the installation of flood lights in the
party area and the scheduling of a large number of non-party
events at the park.
Analysis
The police then decided to take a more analytical approach
to the disorder problem in the park. Officers spent several
weeks watching and then interacting with members of the
party group. Once the party-goers were comfortable with the
officers, the officers interviewed members of the group to
learn why they gathered in the park and congregated in one

35
particular area. The officers learned that the party-goers liked
the spot because it was out of sight, had two exits, contained
a large parking lot in which they could drive around, and
allowed them to see the police coming from a distance.
Officers then interviewed other park users to find out why
they no longer used the partygoers' area. They learned that
the other park users were intimidated by the party group.
An analysis of park usage figures confirmed that no one but
the party-goers used the area. The officers then hosted a
community meeting to elicit additional information about the
problem.
Response
The officers worked with the city parks director to develop
a long-term solution to the problem. Sensing that the party-
goers would not use the park for rowdy socializing if the
area was less appealing to them, the police and parks officials
decided to reduce the size of the massive parking lot and
restrict the flow of traffic to one way, so that traffic safety
in the lot would improve. The officers then worked with
city engineers to draw up the proposed changes and obtain
the necessary authorizations. At the same time, the officers
located an empty downtown parking lot near the police
department for the party group. The lot could easily be
monitored by the police.
Assessment
The Motorheads stopped gathering in the park when the
environmental changes were made to the parking lot. Once
the Motorheads moved downtown, young families began
using all areas of the park again. The new Motorhead lot
downtown was fairly isolated–only a supermarket was nearby–
so the partiers did not generally bother others in the area.

However, there was some displacement of Motorhead-related
juvenile drinking, narcotics sales and reckless driving problems
to the downtown lot area. To address these problems, the
police conducted several targeted enforcement efforts. The
Motorheads realized that they would not be able to keep the
downtown lot unless the problem behavior stopped. At that
point, the group agreed to self-police its activities, and the
behavior of the group is now within acceptable levels.
Example 3: Redmond, Washington28
Collaborative Effort Between Teenagers and Police Reduces Graffiti
Complaints 96 percent in Redmond, Washington
Scanning
In early 1993, Redmond, Washington, a Seattle suburb, faced
a citywide graffiti problem that threatened to overwhelm the
community. The 42,000 residents of the city were filing more
than 60 complaints of graffiti each month. At first, police
officers implemented traditional approaches to the graffiti
problem; they established organized cleanup procedures and
stepped up enforcement patrols in areas that had a lot of
graffiti. These strategies did not impact the problem, however.
Analysis
Looking for different approaches, the officers interviewed a
number of youths whom they believed were associated with
the graffiti. From these discussions, they learned that most
of those responsible for Redmond's graffiti blight–unlike
known offenders in other areas–considered the vandalism
a form of hip-hop art. Initially, the officers questioned
the youths' assertion that the graffiti was a form of self-

37
Looking for different
approaches, the officers
interviewed a number of youths
whom they believed were
associated with the graffiti.
expression, believing it to be perpetrated by gang members.
But after an officer analyzed the department's case reports
and researched the problem of graffiti in general (by reading
popular literature on graffiti and consulting other information
sources), it became clear to him that the Redmond problem
did not involve gangs. One indicator that the graffiti was not
perpetrated by gang members was that the content of the
graffiti in Redmond was not generally violent, whereas graffiti
perpetrated by gangs in other cities sometimes included code
references to murder and other violent acts.
Response
Consequently, the officer met with the teenage taggers in
the hopes of developing a solution to the problem. Rather
than be subjected to increased enforcement, the teenagers
suggested establishing a legal place to paint in return for
a tagging cease-fire. The officer helped the taggers obtain
permission from the city council to erect a graffiti wall and
worked with the taggers to obtain donations from local
businesses for materials needed to construct it.
Assessment
Since the wall was constructed, citizen complaints about
graffiti have decreased from more than 60 per month to an
average of four per month.

39
Reference List
Reference List
Anderson, David; Chenery, Sylvia; and Pease, Ken. Biting Back:
Tackling Repeat Burglary and Car Crime, Crime Detection
and Prevention Series #58, London: Home Office, 1995.
www.homeoffice.gov.uk/rds.policerspubs1.html
California Department of Justice. Community Oriented Policing
& Problem Solving, 1992.
Community Policing Consortium. Understanding Community
Policing: A Framework for Action, Washington: U.S.
Department of Justice, Office of Justice Programs,
Bureau of Justice Assistance, 1994.*
Eck, John E. and Spelman, William. Problem Solving: Problem-
Oriented Policing in Newport News, Washington, D.C.: U.S.
National Institute of Justice and Police Executive
Research Forum, 1987.
Goldstein, Herman. Problem-Oriented Policing, New York:
McGraw Hill, Inc., 1990.
Hoover, Larry T. (ed.) Quantifying Quality in Policing,
Washington, D.C.: Police Executive Research Forum,
1995.
LaVigne, Nancy G. and Eck, John E. A Police Guide to Surveying
Citizens and Their Environment, Washington, D.C.: U.S.
Bureau of Justice Assistance, 1993.*
Neighborhood-Oriented Policing in Rural Communities: A Program
Planning Guide, Washington, D.C.: U.S. Department of
Justice, Office of Justice Programs, Bureau of Justice
Assistance, 1994.*

Problem-Oriented Drug Enforcement: A Community-Based Approach
for Effective Policing, Washington, D.C.: U.S. Department
of Justice, Office of Justice Programs, Bureau of Justice
Assistance, 1993.*
Rich, Thomas. The Use of Computerized Mapping in Crime Control
and Prevention Programs, Washington, DC: U.S. Department
of Justice, National Institute of Justice, 1995.*
Wise After the Event: Tackling Repeat Victimization, London:
National Board for Crime Prevention, Home Office,
1994. www.homeoffice.gov.uk/rds/prcadhocpubs1.htm
* Can be obtained through the National Criminal Justice Reference
Service by calling 800.851.3420 or at www.ncjrs.gov. Some
publications may have a fee.

41
Endnotes
Endnotes
Eck, John E. and Spelman, William. Problem Solving:
Problem-Oriented Policing in Newport News, Washington,
D.C.: U.S. Department of Justice, Office of Justice
Programs, National Institute of Justice and Police
Executive Research Forum, 1987.
Spelman, William, and Eck, John E. "Sitting
Ducks, Ravenous Wolves, and Helping Hands: New
Approaches to Urban Policing," Public Affairs Comment,
Austin, Texas: School of Public Affairs, University of
Texas, 1989.
Farrell, G. and Pease, K. Once Bitten, Twice Bitten: Repeat
Victimization and Its Implications for Crime Prevention,
Crime Prevention Unit Paper 46. London: Home Office,
1993.
Clarke, Roland V. and John E. Eck, Crime Analysis
for Problem Solvers in 60 Small Steps, U.S.
Department of Justice, Office of Community
Oriented Policing, Washington, D.C., 2005.
Stephens, Darrel. "Community Problem-Oriented
Policing: Measuring Impacts," Quantifying Quality in
Policing, Larry T. Hoover(ed.). Washington, D.C.: Police
Executive Research Forum, 1995.
Goldstein, Herman. Problem-Oriented Policing, New
York: McGraw-Hill, Inc., 1990.
Goldstein, 1990.
Goldstein, 1990.
Goldstein, 1990.
This concept was developed by Spelman, William, and
Eck, John E. 1989. It builds on earlier work by Marcus
Felson.
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.

Sampson, Rana. "Problem Solving," Neighborhood-
Oriented Policing in Rural Communities: A Program
Planning Guide, Washington, D.C.: U.S. Department of
Justice, Office of Justice Programs, Bureau of Justice
Assistance, 1994.
Farrell, G. and Pease, 1993.
Anderson, David; Chenery, Sylvia; and Pease, Ken.
Biting Back: Tackling Repeat Burglary and Car Crime,
Crime Detection and Prevention Series No. 58,
London: Home Office, 1995.
Presentation by West Yorkshire Deputy Chief
Inspector John Holt, at the Sixth Annual Problem-
Oriented Policing Conference in San Diego,
November, 1995.
Unpublished training module developed by Rana
Sampson under a grant to the Community Policing
Consortium from the Bureau of Justice Assistance,
U.S. Department of Justice.
Goldstein, 1990.
Sampson, 1994.
Sampson, 1994.
Goldstein, 1990.
Sampson, 1994.
Stephens, Darrel. "Community Problem-Oriented
Policing: Measuring Impacts," Quantifying Quality in
Policing, Larry T. Hoover (ed.). Washington, D.C.:
Police Executive Research Forum, 1996.
Stephens, 1995.
Eck and Spelman, 1987.
Rana Sampson and John Campbell.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
21.
22.
23.
24.

43
Endnotes
Sampson, 1994.
Callahan, Patrick T. Convenience Store Robberies: An
Intervention Strategy by the City of Gainesville, Florida.
City of Gainesville, Florida, n.d.
Nomination submitted by the Mankato (Minnesota)
Department of Public Safety for the Police Executive
Research Forum’s 1994 Herman Goldstein Excellence
in Problem Solving Award.
Krieble, Chuck. "Graffiti Wall Reduces Complaints,
Promotes the Arts," Problem-Solving Quarterly.
Washington, D.C.: Police Executive Research Forum,
1994.
25.
26.
27.
28.

45
Other Problem-Oriented Guides for Police
Problem-Specific Guides series:
1. Assaults in and Around Bars. Michael S. Scott. 2001.
ISBN: 1-932582-00-2
2. Street Prostitution. Michael S. Scott. 2001. ISBN: 1-932582-01-0
3. Speeding in Residential Areas. Michael S. Scott. 2001.
ISBN: 1-932582-02-9
4. Drug Dealing in Privately Owned Apartment Complexes.
Rana Sampson. 2001. ISBN: 1-932582-03-7
5. False Burglar Alarms. Rana Sampson. 2001.
ISBN: 1-932582-04-5
6. Disorderly Youth in Public Places. Michael S. Scott. 2001.
ISBN: 1-932582-05-3
7. Loud Car Stereos. Michael S. Scott. 2001. ISBN: 1-932582-06-1
8. Robbery at Automated Teller Machines. Michael S. Scott.
2001. ISBN: 1-932582-07-X
9. Graffiti. Deborah Lamm Weisel. 2002. ISBN: 1-932582-08-8
10. Thefts of and From Cars in Parking Facilities. Ronald V.
Clarke. 2002. ISBN: 1-932582-09-6
11. Shoplifting. Ronald V. Clarke. 2002. ISBN: 1-932582-10-X
12. Bullying in Schools. Rana Sampson. 2002. ISBN: 1-932582-11-8
13. Panhandling. Michael S. Scott. 2002. ISBN: 1-932582-12-6
14. Rave Parties. Michael S. Scott. 2002. ISBN: 1-932582-13-4
15. Burglary of Retail Establishments. Ronald V. Clarke. 2002.
ISBN: 1-932582-14-2
16. Clandestine Drug Labs. Michael S. Scott. 2002.
ISBN: 1-932582-15-0
17. Acquaintance Rape of College Students. Rana Sampson.
2002. ISBN: 1-932582-16-9
18. Burglary of Single-Family Houses. Deborah Lamm Weisel.
2002. ISBN: 1-932582-17-7
19. Misuse and Abuse of 911. Rana Sampson. 2002.
ISBN: 1-932582-18-5
20. Financial Crimes Against the Elderly.
Kelly Dedel Johnson. 2003. ISBN: 1-932582-22-3

21. Check and Card Fraud. Graeme R. Newman. 2003.
ISBN: 1-932582-27-4
22. Stalking. The National Center for Victims of Crime. 2004.
ISBN: 1-932582-30-4
23. Gun Violence Among Serious Young Offenders. Anthony A.
Braga. 2004. ISBN: 1-932582-31-2
24. Prescription Fraud. Julie Wartell and Nancy G. La Vigne. 2004.
ISBN: 1-932582-33-9
25. Identity Theft. Graeme R. Newman. 2004 ISBN: 1-932582-35-3
26. Crimes Against Tourists. Ronald W. Glensor and Kenneth J. Peak.
2004. ISBN: 1-932582-36-3
27. Underage Drinking. Kelly Dedel Johnson. 2004
ISBN: 1-932582-39-8
28. Street Racing. Kenneth J. Peak and Ronald W. Glensor. 2004.
ISBN: 1-932582-42-8
29. Cruising. Kenneth J. Peak and Ronald W. Glensor. 2004.
ISBN: 1-932582-43-6
30. Disorder at Budget Motels. Karin Schmerler. 2005.
ISBN: 1-932582-41-X
31. Drug Dealing in Open-Air Markets. Alex Harocopos and Mike
Hough. 2005. ISBN: 1-932582-45-2
32. Bomb Threats in Schools. Graeme R. Newman. 2005.
ISBN: 1-932582-46-0
33. Illicit Sexual Activity in Public Places. Kelly Dedel Johnson.
2005. ISBN: 1-932582-47-9
34. Robbery of Taxi Drivers. Martha J. Smith. 2005.
ISBN: 1-932582-50-9
35. School Vandalism and Break-Ins. Kelly Dedel Johnson. 2005.
ISBN: 1-9325802-51-7
36. Drunk Driving. Michael S. Scott, Nina J. Emerson, Louis B.
Antonacci, and Joel B. Plant. 2005. ISBN: 1-932582-57-6
37. Juvenile Runaways. Kelly Dedel. 2006. ISBN: 1932582-56-8
38. The Exploitation of Trafficked Women. Graeme R. Newman.
2006. ISBN: 1-932582-59-2
39. Student Party Riots. Tamara D. Madensen and John E. Eck. 2006.
ISBN: 1-932582-60-6

47
40. Mentally Ill People. Gary Cordner. 2006.
ISBN: 1-932582-63-0
41. Child Pornography on the Internet. Richard Wortley
and Stephen Smallbone. 2006. ISBN: 1-932582-65-7
Response Guides series:
• The Benefits and Consequences of Police
Crackdowns. Michael S. Scott. 2003. ISBN: 1-932582-24-X
• Closing Streets and Alleys to Reduce Crime: Should
You Go Down This Road? Ronald V. Clarke. 2004.
ISBN: 1-932582-41-X
• Shifting and Sharing Responsibility for Public Safety
Problems. Michael S. Scott and Herman Goldstein.
2005. ISBN: 1-932582-55-X
• Video Surveillance of Public Places. Jerry Ratcliffe.
2006. ISBN: 1-932582-58-4
• Crime-Prevention Publicity Campaigns. Emmanuel
Barthe. 2006. ISBN: 1-932582-66-5
Problem-Solving Tools series:
• Assessing Responses to Problems: An Introductory
Guide for Police Problem-Solvers. John E. Eck. 2002.
ISBN: 1-932582-19-3
• Researching a Problem. Ronald V. Clarke and Phyllis A.
Schultz. 2005. ISBN: 1-932582-48-7
• Using Offender Interviews to Inform Police Problem
Solving. Scott H. Decker. 2005. ISBN: 1932582-49-5
• Analyzing Repeat Victimization. Deborah Lamm
Weisel. 2005. ISBN: 1-932582-54-1

Upcoming Problem-Oriented Guides for Police:
Problem-Specific Guides
Domestic Violence
Bank Robbery
Witness Intimidation
Drive-by Shootings
Problem with Day Laborer Sites
Crowd Control at Stadiums and Other Entertainment Venues
Traffic Congestion Around Schools
Theft from Construction Sites of Single Family Houses
Robbery of Convenience Stores
Theft from Cars on Streets
Problem-Solving Tools
Partnering with Business to Address Public Safety Problems
Risky Facilities
Implementing Responses to Problems
Designing a Problem Analysis System
Response Guides
Crime Prevention Through Environmental Design
For more information about the Problem-Oriented Guides for
Police series and other COPS Office publications, please call
the COPS Office Response Center at 800.421.6770 or visit
COPS Online at www.cops.usdoj.gov.

www.cops.usdoj.gov
FOR MORE INFORMATION:
1100 Vermont Avenue, N.W.
Washington, DC 20530
To obtain details on COPS programs, call the
COPS Office Response Center at 800.421.6770
Visit the COPS online at the address listed below.
e05060069 Updated Date: July 11, 2006

A Guide To Reducing Crime And Disorder Through Problem-Solving Partnerships

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