A 2008 local crime study focusing on truancy and discipline problems in the Hamilton County schools recommends eliminating very early start times and early afternoon release of students.
The study that was carried out through the city's Multi-Cultural Office reports the latest numbers of 15,000 truancy cases and 54,000 disciplinary issues for a year in the county schools.
The report says students cannot learn well and are irritable when they start school so early.
It also says that students who are released early in the afternoon often get into trouble then.
The report recommends that the county schools adopt and implement a single start time (8:30-3:30) for all Hamilton County middle and high schools.
The study also says parents should be notified as soon as possible when students don't show up for school - including using the system's automated "connect-Ed system.
It says the county schools need to hire at least one person who focuses on student attendance and the school system should establish a truancy school "for children between seven and 16 years of age who are habitually truant, or while in attendance at school are incorrigible, vicious, immoral, or who habitually wander or loiter about without lawful employment."
The study says Tennessee should follow Georgia's law in linking teen driving privileges to school attendance.
The report says the school system should "identify court(s) and judge(s) willing to work with truancy cases." Several local judges have been urging the county schools to work with them on truancy issues. School Board Attorney Scott Bennett has cited state privacy laws in regard to student records.
The study says curfew laws should be strictly enforced and says high school and middle school students should be issued ID cards.
UTC Professor Roger Thompson, who was involved in the study, said, "I would like to think this crime report will not be another futile exercise that ends up on a shelve somewhere. The truancy numbers did startle me both in number and the fact that there was little to no response to the apparent problem. All I have heard from education folks is that we can’t do anything because it costs money - and we are already over budget.
"The time has come to begin developing and implementing an action plan to turn the tide of school attendance.
"There is need to look beyond this truancy issue as well. Last year there were over 54,000 disciplinary incidents in our schools. Something needs to happen to slow down this freight train to juvenile and adult court.
"Also noteworthy is the early start time for many schools. I do not pretend that this single item is a magic bullet, but I am around teens and parents a lot and I know the routine of wake-up at 5 a.m. to catch a bus at 6 a.m. to start class at 7 a.m. Many students start their day tired and irritable. My guess is that this early timetable has some influence on the disciplinary puzzle. Knoxville starts all schools at 8:30 a.m. with release at 3:30 p.m. Fairfax (Va) has decided to change their transportation system and found a way to do it at no additional cost. Their point is to offer students the best ingredients for academic success.
"Then we release students shortly after 2 p.m. even though academic performance is weak and struggling to reach the lowest benchmarks. Why, pray tell.
"In summary, a lot of damage is being done to our kids under current educational policies and procedures. We must design a new model that will promote academic success and embrace civil behaviors toward students, teachers, and staff. People are already voting with their feet by selecting private schools or choosing to home school. I believe Hamilton County has one of the highest rates in the state if not region. There is reason for this."
General Sessions Court Judge Bob Moon said, "In many ways the classroom teacher is like the courtroom judge, neither has the time nor the resources to micromanage the individual needs of every child or defendant in the system.
"A child should be disciplined by parents before he or she enters the classroom. When there is no example or discipline in the home, there will be none in the classroom or the courtroom.
"My brother and I lived in a small four-room house in East Lake. It was a tough community growing up even then with gangs and violence. My family had none of the things that money could buy, but we were a family that had all of the things that money could not buy. There were rules and there was discipline. We were taught to respect people and especially our teachers. Teaching a child respect, discipline and manners is free and without any cost. It just takes time and a willingness to be a parent. The thought of missing class was never an option in our family. My parents did not need a village nor anyone else's money to survive. Both of my parents worked hard every day. They were too proud to beg and filled with too much pride to take charity. They knew that raising me and my brother was their sole responsibility and no one else's. They were more concerned about teaching and making rules than irresponsibility and making excuses.
"My father and mother refused to blame society, government or anything or anyone else for any of the mistakes that my brother and I made.
"In short, my parents created an American family that got it right with their kids, and my brother and I are thankful for their love and sacrifices made for us.
"Many of the 10,000 kids truant in 2006 and today in Hamilton County are neither poor nor underprivileged; many are, but most are simply truant. As a judge and as a citizen, I am tired of lawyers and educators telling me what they cannot do. Instead, I am ready to hear what they can and will do.
"The judges intend to fight until hell freezes over and then stand on the ice if necessary until the truancy epidemic in Hamilton County is properly addressed and reduced."
Here is the full report:
2008 Crime Task Force Committee Members:
A. Michele Langford-Henner
University of Tennessee Chattanooga
Al Tucker
Department of Human Services
Avery Ragland
Freeman Cooper
Chattanooga Police Department
Gary D. Behler
First Things First
Ponda Foster
Chattanooga Police Department
Roger Thompson, Chair
University of Tennessee Chattanooga
Sherman Matthews
Hamilton County Regional Office
Vic Bumphus, Co-Chair
University of Tennessee Chattanooga
Ms. Camilla Bibbs-Lee
Community Anti-Drug Coalition Across Hamilton County
Dr. Barbara Medley, Ph.D.
University of Tennessee Chattanooga
Mr. Solomon Hatch
Office of Multicultural Affairs
Mr. James Piercy
Office of Multicultural Affairs
Ms. Casandra Crosby
Office of Multicultural Affairs
Guest Presenters:
Judge Suzanne Bailey
Hamilton County Juvenile Court
Captian Mike Mathis
Chattanooga Police Department
Executive Summary
This report outlines the recommendations of the 2008 Chattanooga Crime Task Force Committee. Eighteen specific recommendations are detailed across the three broad recommendations of the previous [2005] Committee, which included reducing juvenile delinquency and related risk factors, improving criminal justice and community relations, and enhancing criminal justice accountability. Due to the myriad of problems stemming from juvenile delinquency issues, this report spends a disproportionate amount of time discussing truancy and school-related factors as the relate community crime problems.
Table of Contents
List of 2008 Recommendations…………………………………………….pg 4
Introduction…………………………………………………………………pg 5
Recommendation (2005): Reduce Juvenile Delinquency…………………...pg 6
Truancy Numbers…………………………………………………………...pg 7
a. Illustration 1: Attendance and Graduation Percentages pg 8
Truancy Laws……………………………………………………………….pg 8
Other Influential Variables………………………………………………….pg 11
a. Illustration 2: Hamilton County Schools 2007-2008 Bell Times pg 11
b. Illustration 3: Percent of Crimes Against Juveniles Occurring
Each Hour pg 14
Recommendation (2005): Improve police community relations……………pg 17
Recommendation (2005): Improve Accountability…………………………pg 20
Summary and Conclusion…………………………………………………...pg 21
Endnotes………………………………………………………………….…pg 22
Appendix…………………………………………………………………....pg 23
Introduction
We, the people of the United States, in order to form a more perfect Union, establish justice, insure domestic tranquility, provide for the common defense, promote the general welfare, and secure the blessings of liberty to ourselves and our posterity do ordain and establish this Constitution for the United States of America.1
These words form the Preamble to the United States Constitution and reveal our ideals, aspirations, and values for both public and private life. It is important to begin this report emphasizing the positive moral imperatives emanating from this document and the framework of the government created. Democracy requires active citizen participation in governance with regular, and sometimes strenuous, exercise to be realized and enjoyed. In other words, freedom is not free—there are responsibilities attached! We must talk together, discuss and debate issues, identify choices, deliberate, and eventually arrive at consensus in terms of direction for public policy. In addition, this knowledge base and value system must be passed down to the next generation for similar guidance and direction. Failure to meet inherent civic responsibilities weakens democratic foundations and changes the nature of personal relationships to” Me “instead of” We”, the people. 2
This report is written as an update to the Chattanooga African American Summit (2005) Crime Task Force Report chaired by Camilla Bibbs-Lee. Their recommendations serve as focal points for review, research, and action plans relevant for implementation today. The written format differs somewhat from traditional styles insofar that this report is intended to serve as a stimulus for public conversation upon completion and presentation to various public and private audiences. Very simply, the final chapter surrounding the topics of study has not been written. Instead, individual and collective conversations are invited to think and talk about the contents of this report. Neighbors need to talk together about community values, wrestle with complex issues, clarify choices, and move toward solution(s). We face direct challenge to the values exemplified in the Preamble and must begin to do the work that democracy demands of us all!3
Recommendation (2005): Reduce Juvenile Delinquency:
Create a Holistic Approach to Address Social Factors
(family, drugs, employment)
Juvenile delinquency remains no stranger to American life. Every generation is tested in terms of moral and social boundaries, parenting skills, enforcement mechanisms, tenacity, and intestinal fortitude. There is no single recipe or simple solution to the myriad of behaviors falling under this umbrella; however we find ourselves in shock and dismay at the levels of gun violence and reckless behaviors on display within family units, around school environments, and throughout the community at large. Tempers and tolerances are being tested in courtrooms across the country in defining and addressing juvenile crime with some felony categories now elevated to adult status for prosecution and penalty. The topic is so broad and amorphous that it becomes difficult to define given the number of variables at play. A Summary Report from the Hamilton County Juvenile Court is included in the Appendix. This committee selected one variable--the issue of truancy-- to study and understand how it exercises influence and impact on crime in the community. Herein are contained bits and pieces of information that, at the very least, outline the shadows of truancy. Admittedly, it may not be definitive in every aspect however the data paint a disturbing picture.
Truancy by definition refers to a student’s unexcused absence from school. It is a status offense which means it would not be a crime if committed by an adult. The Tennessee Department of Education (TNDOE) defines a truancy incident as five unexcused absences within the same year. Six unexcused absences equal two truancy incidents, etc. The numbers vary across Tennessee jurisdictional boundaries with thousands of youth involved in metropolitan areas. The equation is very simple and direct----truant students are at risk for many negative outcomes:4
*Educational failure
*Social isolation
*Substance abuse
*Low self-esteem
*Unwanted pregnancy
*Unemployment
*Violence
*Adult criminality and incarceration
The leading question for attention by the Crime Task Force committee surrounds the nature and impact of truancy rates in Hamilton County Schools, and how this behavior interferes with academic success and concomitantly contributes to crime patterns in various forms.
Truancy numbers
Accurate numbers describing truant behavior at the local level escape common definition, collection, and analysis. Very simply, the numbers being reported do not provide comfort in terms of what is happening in our schools on a daily basis. For example, Tennessee Department of Education (TDOE) truancy data for Hamilton County Schools total 19,443 in 2005-2006. In the following year, the number dramatically drops to 637 due to differentiation wanted between excused and unexcused absences. The current year (2007-2008) shows approximately 15,000 attendance- related incidents via local information provided by Hamilton County Department of Education representatives. Caution must be exercised in accepting this number due to the inclusion of tardiness behavior. What becomes clear and obvious is the need for stronger data that can stand the test of time and comparison between local schools and among school systems across the state.
The Tennessee Report Card 2007 contains valuable information about truancy in that it cites attendance rates and graduation rates per high school and school system.5 The following chart depicts rates as found on the TNDOE website. It is important to note that the state goal for attendance is 93 % and the state graduation goal is 90%. Reporting data only in this manner yields a masking effect of the actual and total number of students involved in truant behavior.
The data indicate on average we are losing 9% of our student population to attendance problems. At the high school level this number approaches 1,000 students given a total high school population of 10,964. With few exceptions, graduation rates fall far short of the 90% statewide goal. The current number of attendance related incidents precipitating disciplinary action this academic year (@15,000) gives reason for concern and response.
Illustration 1: Attendance and Graduation Percentages, 2005-2007
__________________________________________________________________
High School
Attendance 2005
Attendance 2006
Attendance 2007
Graduation 2006
Graduation 2007
21st Century
95.2
94.3
94.2
92.9
95.8
Brainerd
88.8
87.3
85.9
63.9
61.6
Creative Arts
94.1
94.3
94.7
90.8
88.5
Central
89.5
90
92.3
76.7
72.2
CSAS
97
95.9
96.5
99
94.3
CSLA
N/A
N/A
N/A
N/A
N/A
East Lake Acad.
N/A
N/A
N/A
N/A
N/A
East Ridge
88.6
88.7
90.8
79.4
83.1
Hamilton County
84.1
87.8
93.8
N/A
33.8
Hixson
90.5
89.9
88.3
76.7
74.1
Howard
87.2
88.8
88.1
38
47.4
Lookout Valley
92.2
91.7
92.3
67.2
77.8
Ooltewah
93
92.9
92.3
87.7
85.5
Red Bank
92.4
92.4
92.1
81.9
71.7
Sequoyah
N/A
87.4
89.5
66.3
69
Soddy Daisy
92
93.4
93.1
76.7
77.9
Tyner Academy
94.3
91.6
90.9
82.1
84.3
__________________________________________________________
Truancy Laws
Every parent or legal guardian residing within this state having control or charge of any child or children between six (6) years of age and seventeen (17) years of age, both inclusive, shall cause such child or children to attend public or non-public school, and in the event of failure to do so, shall be subject to the penalties hereinafter provided (T.C.A.49-6-3001).
Violation is a Class C misdemeanor which means the judicial system can assess a fine up to $50 or impose an order of five hours of community service against the parent/guardian.
Current compulsory education laws (T.C.A. 49-6-3007 (e) requires schools to notify the superintendent of any student who acquires five (5) unexcused absences within a school year. The superintendent must then notify the parent/guardian about the truancy via communication by letter. Therein rests one of the significant problems surrounding truancy--- a significant delay in response. By the time administrative action is taken serious academic damage has already taken place guaranteeing academic failure for the semester or year. If truancy behavior continues while the prescribed notification process is underway academic failure becomes a certainty. Wanted and needed is an immediate daily notification system thereby preventing the cycle of academic failure, dropout, unemployment, and crime. Recent announcement by the Hamilton County School system of a new electronic service called Connect-ED offers potential promise for use in this arena. Principals can notify parents on cell phones or by e-mail en mass. Notification of student absence at a parent/guardian work environment by phone or e-mail stands a better chance for receipt and response than current dependence on mail to the home address.
Recommendation 1:
Use Connect-Ed to notify parents immediately of any unexcused absence.
Another law worthy of note (T.C.A. 49-6-3006) empowers any local school board or superintendent to employ at least one full-time attendance officer, if warranted. The Hamilton County Department of Education does not employ a person with such title or authority. If truancy is going to be an active agenda item for federal, state, and local attention then argument can be made that at least one person be identified to work within the local educational system to design better data systems and implement effective strategies for truancy intervention and reduction.
Recommendation 2:
Employ at least one full-time person at HCDE central office with responsibility for school attendance related activity.
State law also provides authority to establish a truancy school for children between seven (7) and sixteen (16) years of age who are habitually truant, or while in attendance at school are incorrigible, vicious, immoral, or who habitually wander or loiter about without lawful employment (T.C.A. 49-6-3012). One of the difficult questions often posed by law enforcement officers involves their response to kids on the streets during school hours and school days. There is talk in several circles about truancy centers as drop-off locations, truancy court, daytime curfew, another alternative school, and an effective legal process to slow down negative behaviors at play—parent and student. What becomes evident in this type of discussion is that all major players need to be at the same table working on common solution(s). Partnerships are going to be needed between the schools and community that go beyond current connections.
Recommendation 3:
Explore the concept of a truancy center.
Teenagers yearn for car keys and driving privileges in their rite of passage to adulthood. Truancy is linked to teenage driving through a form that must be signed by school officials indicating compliance with attendance requirements. This form is then submitted to the Tennessee Department of Public Safety at the time of application for Learner Permit. If an applicant has more than 10 consecutive or 15 cumulative absences in one semester he/she is not eligible for a license or it may be revoked (T.C.A. 49-6-3017).Currently this form is only required at the entry stage of the graduated licensing system in effect which captures the attention of 15 year olds but misses the conduct of 16-18 year-olds. Georgia requires a behavior check and sign-off at all levels of teenage licensure thereby serving notice that school- related behaviors influence responsibilities being granted. Georgia also provides revocation of license at any stage for assaultive behavior directed at a teacher, staff member, or student.
Recommendation 4:
Legislation should be modified to require school conduct forms at all stages of graduated licensing. Provision should also be made enabling revocation of license for assaultive behavior within a school environment.
Judicial jurisdiction to hear truancy cases is vested in the juvenile court or general sessions court (T.C.A. 49-6-3010). Authority is already vested therefore the issue surrounds who wants to open their door for business?
Recommendation 5:
Identify court(s) and judge(s) willing to work with truancy cases.
One observation that may explain some absenteeism involves teenagers being out on the streets until early hours of the morning. Chattanooga has a curfew law for minors that states “it is unlawful for any minor under the age of 16 to be out after 11 p.m. on weekdays or 12:00 midnight on weekends without accompaniment of parent or guardian”.
Recommendation 6:
Enforce juvenile curfew laws.
Other Influential Variables
One of the silent and salient variables defining student conduct, performance, and achievement involves daily routine, especially in terms of first bell for start of the day. The early start times of Hamilton County Schools raises question and challenge to the benefits of the 7:15 am time period in operation at many Middle and High Schools:
Illustration 2: Hamilton County Schools 2007-2008 Bell Times
_______________________________________________________
SCHOOL
21st Century Academy 9:00 - 4:00
Allen Elementary 8:15 - 3:15
Alpine Crest Elementary 8:00 - 3:00
Apison Elementary 8:45 - 3:45
Barger Academy 8:55 - 3:55
Battle Academy 8:00 - 3:00
Big Ridge Elementary 8:30 - 3:30
Birchwood Elementary 8:15 - 3:15
Brainerd High 7:15 - 2:15
Brown Academy 8:00 - 3:00
Brown Middle 7:15 - 2:15
Center for Creative Arts 9:00 - 4:00
Central High 7:20 - 2:20
Chattanooga Middle Museum 9:00 - 4:00
Clifton Hills Elementary 8:00 - 3:00
CSAS 9:00 - 4:00
CSLA 9:00 - 4:00
Daisy Elementary 8:00 – 3:00
Dalewood Middle 7:15 - 2:15
Dawn School 9:00 - 4:00
Donaldson, Calvin Elementary 8:00 - 3:00
Dupont Elementary 8:15 - 3:15
East Brainerd Elementary 8:45 - 3:45
East Lake Academy 9:00 - 4:00
East Lake Elementary 8:00 - 3:00
East Ridge Elementary 8:30 - 3:30
East Ridge High 7:15 - 2:15
East Ridge Middle 7:45 - 2:45
East Side Elementary 8:00 - 3:00
Falling Water Elementary 8:30 - 3:30
Ganns Middle Valley
Elementary 8:00 - 3:00
Hamilton County High 8:00 - 3:10
Hardy Elementary 8:00 - 3:00
Harrison Elementary 8:00 - 3:00
Hillcrest Elementary 8:45 - 3:45
Hixson Elementary 8:45 - 3:45
Hixson High 7:15 - 2:15
Hixson Middle 7:25 - 2:25
Howard Middle 7:15 - 2:15
HSAT 7:15 - 2:15
Hunter Middle 7:15 - 2:15
Lakeside Academy 9:00 - 4:00
Loftis Middle 7:15 - 2:15
Lookout Mountain Elementary 8:00 - 3:00
Lookout Valley Elementary 8:15 - 3:15
Lookout Valley High 7:15 - 2:15
Lookout Valley Middle 7:15 - 2:15
McBrien Elementary 8:15 - 3:15
McConnell Elementary 8:15 - 3:15
N. Hamilton County Elementary 8:30 - 3:30
Nolan Elementary 8:45 - 3:45
Normal Park Museum Magnet 8:00 - 3:00
Ooltewah Elementary 8:10 - 3:10
Ooltewah High 7:15 - 2:15
Ooltewah Middle 7:35 - 2:35
Orchard Knob Elementary 8:00 - 3:00
Orchard Knob Middle 7:15 - 2:15
Red Bank Elementary 8:00 - 3:00
Red Bank High 7:15 - 2:15
Red Bank Middle 7:25 - 2:25
Rivermont Elementary 8:45 - 3:45
Sale Creek Middle/High 7:15 - 2:15
Sequoyah High 9:00 – 4:00
Shepherd, Bess T. Elementary 8:15 - 3:15
Signal Mountain Middle 7:25 - 2:25
Smith, Wallace Elementary 8:15 - 3:15
Snow Hill Elementary 8:30 - 3:30
Soddy Elementary 8:30 - 3:30
Soddy-Daisy High 7:15 - 2:15
Soddy-Daisy Middle 7:15 - 2:15
Spring Creek Elementary 9:00 – 4:00
Thrasher Elementary 8:10 - 3:10
Tyner Academy 9:00 - 4:00
Tyner Middle Academy 9:00 - 4:00
Washington Alternative 9:15 – 4:15
Westview Elementary 8:15 - 3:15
Wolftever Creek Elementary 8:20 - 3:20
Woodmore Elementary 8:00 - 3:00
______________________________________________________
What becomes obvious at the outset is a three-tier system. Select middle and high schools check-in at 7:15 am. Elementary students arrive @ 8:00-8:30 a.m. Magnet schools start their day @ 9 a.m. The question for debate centers on what time period offers the most promise for academic success? Knoxville starts all middle and high schools at 8:30 a.m. with release at 3:30 p.m. They utilize one standard time frame to meet their academic needs.
Economic interests promoting such an early start vary. Admittedly, Tennessee has strong roots in agriculture, and there were initial needs for helping hands related to cattle and crops when facing an agrarian lifestyle. However, times have changed in Hamilton County whereby urbanization is reflected in population, commerce, and service-related employment. If the early start time is predicated upon an agricultural heritage then we have an anachronism at play and need to update and change with the times.
Suggestion is also made that athletic coaches might be responsible for the schedule in place. Academic success must not be compromised in the balance of educational enterprise. Athletic programs can be competitive and successful with a practice start time of 4 pm as attested to by Baylor, McCallie, GPS, Notre Dame, et al.
Another plausible explanation for the early start time surrounds transportation. It is all about school buses, drivers, and expectations related thereto. No doubt there is financial difference in terms of the number of buses needed to operate a 3-tier system versus a 2-tier system which would enable all middle and high schools to operate on the same daily schedule. Again, academic success should serve as the basis for guidance and decision as opposed to organizational convenience related to transportation costs.
Starting a school day @ 7:15 a.m. translates to a wake-up alarm @ 5 a.m. in order to catch a bus @ 6 a.m. Sleep research tells us that teenagers need more sleep than adults and sleep deprivation simply brings a number of unwelcome behaviors into the educational environment. The first negative involves continued sleepiness followed by a depressed mood, irritability, and low motivation which returns poor performance. One high school--Howard --- is changing their start time this 2008- 2009 academic year given a state mandate to address low attendance and performance indicators. Another—Signal Mountain—is a new public school with decision still pending about start time. Seemingly, if start time is performance related then all schools should follow the magnet model and start @ 9 a.m.
Ending the school day shortly after 2 pm creates other disturbance factors. 6
Illustration 3:
Turning teens loose on the streets at such an early release time (2:15 p.m.) with neither constructive activity nor parental supervision presents another set of challenges. For some, there are after-school athletic activities, clubs, and employment to invest time and energy. For others, the last bell signals opportune time for mischief. The prime time for juvenile crime is from 3 p.m.-6 p.m. Neighborhoods turn into playgrounds for testing interpersonal relationships, dealing with conflict, and experimenting with high-risk behaviors involving drugs and sexual encounters. At issue here is the organizational policy and practice of release at a time that offers strong temptations without parental support systems in place given the likelihood that parent(s) are at work. A question must be raised about the continuation of a practice that threatens both emotional and physical boundaries.
Recommendation 7:
Adopt and implement a single start time (8:30-3:30) for all Hamilton County Middle and High Schools.
Truancy will continue to be a topic of study long after issuance of this report insofar that the U.S. Attorney’s Office for the Eastern District of Tennessee, the Honorable Russ Dedrick, has set truancy as a top priority item for U.S. Department of Justice Weed and Seed programs in East Tennessee. Chattanooga has three Weed & Seed sites (Westside, MLK, and Eastside). Collectively they will be working in partnership with local, regional, and national representatives to identify best practices for truancy reduction.
Recommendation 8:
Develop a partnership with U.S. Attorney and local Weed & Seed initiative to promote crime prevention strategies at early stages.
Time did not permit investigation into other behaviors contributing to juvenile delinquency albeit the HCDE Behavior Report for 2007-2008 invites similar review and analysis given the nature of conduct and disciplinary actions taken. 0Beyond approximately15,000 attendance related incidents, there are conduct related behaviors ranging from teacher assaults, fighting, weapons, and threats. The level of disciplinary infractions totals over 54,000 incidents for the 2007-2008 academic year. The behavior management system being used by teachers, principals, and central office administrators merits multidisciplinary review given over 9,000 suspensions. We need a better understanding of what is happening, how, and what can be done to enhance and improve the learning environment.
Recommendation 9:
Create a multidisciplinary task force to review and analyze the behavior management system in use by Hamilton County Schools.
School safety is now a topic of attention and review. A student should be required to carry positive proof of identification when on school property or attending school-related events.
Recommendation 10:
Establish an ID card for middle and high school students.
Students currently have their pictures taken for their annual yearbook. Having a picture ID required as part of the adopted dress code will enhance public safety considerations.
Teen venues and pajama parties merit special attention insofar that they attract young audiences as well as adult youth. Outbreaks of violence are not uncommon. Promoters should be held liable and responsible for a business license, proof of insurance, adequate professional security, etc.
Recommendation 11:
Require concert promoters to register and obtain a business license, show proof of insurance, and show a plan to meet all health and safety standards.
Recommendation (2005): Improve police community relations, especially in minority communities.
Police organizations have experienced a metamorphosis in recent years shifting from reactive case by case policing to proactive problem-oriented policing. Philosophical foundations supporting this change promote crime prevention as an essential ingredient in meeting the mission of the organization with practices now directed at underlying causes of criminal behaviors, not just symptoms.7
The topic—police-community relations-- is broader in scope yet similar in nature to earlier discussion surrounding juvenile delinquency. Focus herein is set on how the public understands law, the nature of policing, and decision points influencing engagement of the entire legal system.
Before examining law enforcement practices and procedures question must be raised about whether the “rules” of society are known? This may sound simplistic at the start however human behaviors turn hostile when faced with elements of surprise and confusion. Law, and expectations related thereto, should no longer remain a mystery given the benefits of the electronic age and the internet. Since “ignorance of the law” is not accepted as a legal defense, effort must be mounted to counter media distortions and imaginations at play. For example, some believe that self-defense means that if another person starts the fight, you are free to finish it in any way wanted, including by bullet! Weapons are carried for purpose of self-defense. But the law is far different in language than what is being advertised. Penalties multiply with stingers attached especially when guns become part of the equation. At the outset, laws defining criminal behavior should be enumerated and summarized for benefit of public education.
Recommendation 12:
Create a short list of criminal behavior(s) with penalties. Post as a link on law enforcement and court websites.
Television shows have accentuated interest in crime as attested to by popular show such as Hill Street Blues, Cops, Barney Miller, Reno 911, and fascination with forensic science investigation techniques (CSI).The film industry has added hero images in the likes of Dirty Harry and the multitude of characters portrayed Charles Bronson to name a few. Unfortunately, what is being depicted for entertainment value may not be in accordance with actual police policy or procedure thereby resulting in major disconnects surrounding law enforcement performance expectations? Again, a surprise factor in police response generates frustration, confusion, and on occasion, a hostile response. Remedy to this situation involves helping the public better understand the world of policing by engaging citizens in experiential learning exercises related to understanding the police organization, training, lethal force, drugs, enforcement strategies, and opportunities for partnership.
To their credit, the Chattanooga Police Department has moved aggressively in this direction. A Citizen’s Police Academy (CPA) started in 1999 to acquaint citizens with operational procedures has graduated over 180 participants. Additional efforts have been implemented with the faith-based community through partnership with a community organization, Stop the Madness. Approximately 60 ministers have graduated from the Community Leaders Addressing Social Struggles (C.L.A.S.S.) program. This is a beginning. To be effective, the process must continue.
Recommendation 13:
Continue citizen-police academies to encourage understanding, interaction, and outreach.
Conflict management serves at the heart of any police organization with question, and sometimes challenge, to the style of policing and methods employed. A Citizen’s Review Committee has been created to allow outside perspective to the work and recommendations by Internal Affairs division of Chattanooga Police department. The committee structure and guidelines are currently undergoing revision so final details remain unknown. Herein rests opportunity to build community voice and support for difficult and controversial decisions.
Recommendation 14:
Re-activate the Citizens Review Panel per revised guidelines.
One of the findings revealed during discussion of the Citizen’s Review Panel involves the need for transparency in terms of board appointments, responsibilities, and accountability. Communities do not know who represents their district beyond City Council representative. If government business is being conducted via committees and boards then argument is made for full disclosure of committee membership and accountability. At minimum, a committee should have to prepare and present an annual report to City Council each year. Committee membership and annual reports should be made available on various government websites.
Recommendation 15:
Require all boards and committees appointed to do the work of government to list membership, define responsibilities of the committee, and submit an annual report. Information is to be made available via various government web-sites.
Returning to the subject of police-community relations and abundant confusion surrounding officer discretion versus discrimination, court jurisdictions (juvenile, adult, civil, criminal, state, federal), correctional methodologies (diversion, probation, incarceration, parole) not to mention community variables related to crime (drugs, gangs, unemployment), there is need to develop academic tools to teach age groups spanning a wide spectrum from early adolescence to the elderly about law and criminal justice system. The Office of Multicultural Affairs has taken a giant stride in this direction via production of a DVD on understanding the mission and goals of the police, prosecutor, defense attorney, judge, and court. Hopefully, this will lead to a series that can reach students in school and adults in various community organizations. Judge Neil Thomas recently directed production of a video tape on the history and nature of jury service as an aid in orientation for empanelled jurors. The quality of the tape sets a standard that should be welcomed in both academic and social circles.
Recommendation 16:
Develop a DVD series on Navigating the Criminal Justice System.
Recommendation (2005): Improve Accountability
Transparency in government is the hue and cry in any reform effort today. Anonymity in committee membership and record of activity invites suspicion, cynicism, criticism, and distrust. Wanted and needed is more open disclosure of committee structures and activities. Summary data and annual reports should be available on appropriate internet government web sites. This item surfaced during discussion of the Police-Citizen Review Board but the issue is far more expansive and relates to all the permutations of government at work. Police often serve on the front line of government responding to both negative attitudes and behaviors. Any improvement to the secrecy element would in turn create more positive community relations and encounters.
Recommendation 17: Require all appointed boards and committees to list membership, define responsibilities, and submit an annual report. This information would be available on-line via various government web sites.
The information highway creates many new opportunities to design organizations, encourage interaction, share information, and provide links for additional assistance. Cyberspace is a resource that merits attention and development given educational needs in relation to law, community policing, crime analysis, community surveys, etc. It is not clear whether restrictions are in effect with the current Chattanooga Police Department website or if benefits could be realized through development of a separate law enforcement website. Regardless of decision or direction, the website for the Chattanooga Police Department needs to become more active, involved, and connected to the community.
Recommendation 18: Improve the Chattanooga Police Department website to be responsive not only to organizational demands but also to community needs.
Summary and Conclusion
The recommendations offered in this document are guided by the previous Crime Task Force Report of 2005. Broadly, the 2005 recommendations included reducing the juvenile delinquency and related social factors, improving criminal justice and community relations, and improving systems of overall accountability related crime, law, and justice activities. This report therefore adds to the important work of the 2005 effort by making specific “achievable” recommendations related to each area. As stated, the issue of school truancy took on special importance for this report to due to the noted connections between school attendance/failure and juvenile delinquency and crime. The need for better criminal justice and community relations has been an important goal since the community crises of the 1960s, and some efforts even predate this period. There is ample evidence that perceptions of procedural due process enhance cooperation and positive respect for the system of justice as a whole.
Finally, the need for accountability underlies our system of government and promotes much less scrutiny and exchange of valid, useable information. Technological and other strategic efforts to enhance accountability and a broad dissemination of relevant information on the justice system are paramount.
Endnotes
1.The United States Constitution, Introduction to Criminal Justice by Larry Siegel and Joseph Senna, 10th Edition.
2.Coming to Public Judgment: Making Democracy Work in a Complex World by Daniel Yankelovich, Syracuse University Press, 1991.
3. Politics for People: Finding a Responsible Public Voice by David Mathews, University of Illinois Press, 1994.
4. See http://ojjdp.ncjrs.gov/truancy/best.html
5. See http://edu.reportcard.state.tn.us
6. Association of Sleep and Academic Performance in Sleep and Breathing, Volume 6,Number 1, 2002. See also www.fightcrime.org
7. Critical Issues in Policing by Roger Dunham and Geoffrey Alpert,Waveland Press, Third Edition, 1997.
Appendix
2005 Crime Task Force Report
Hamilton County Juvenile Court data
Hamilton County Schools Behavior data
Legal Information on Truancy
The entire report with appendices is at www.chattanooga.gov under Multicultural Affairs under OMA Advisory Board at Task Forces.