The Evolution of Evidence-Based Policing in Lowell, Massachusetts
Organization Name:
Community Name:
Organization or Community Type:
What was the criminal justice problem facing the community?
Description of Problem:
The community of Lowell, MA, proactively looked to research and science to develop problem-oriented policing strategy to bring about crime reductions while simultaneously coping with diminishing funding and resources. In 2004, the hot spots of crime in the city of Lowell accounted for 2.7 percent of Lowell’s square miles and 23.5 percent of total crime and disorder calls to the Lowell Police Department (LPD). As a result, the LPD looked to the broken windows theory of policing to reduce crime and social disorder in hot spot areas and promote broader crime reduction. Leadership in the LPD understood the value of research, data analysis, and information-sharing in proactively targeting and preventing instances of crime and developing future policing strategy. With the success of hot spot policing, the LPD looked to the Smart Policing Initiative as a means to further institutionalize evidence-based strategy into its daily outlook and operations.
What factors were contributing to the criminal justice problem?:
- Personnel layoffs and resource reductions
- Concentrated areas of crime and social disorder
- Increasing rates of youth offenders
- Increasing rates of repeat offenders within the population
Criminal Justice Topic area:
Which evidence-based solutions were recommended for this problem?
Name of evidence-based program or practice:
Description of Evidence-Based Program or Practice:
An early supporter of incorporating research into policing strategy, the Lowell Police Department looked to evidence-based programs, such as hot spot policing, to reduce the high levels of crime and disorder. Based on the broken windows theory of criminal justice, the hot spot policing program aims to reduce overall disorder in high-crime areas as an initial step to improve conditions and reduce overall crime. The program uses a problem-oriented policing approach to concentrate specifically on the reduction of nuisance crime, in combination with a hot spots policing approach to target specific high-crime areas
For more details on this evidence-based program, visit Crime Solutions.gov at: Click here
The successful use of the hot spot policing approach in high-crime areas then led the Lowell Police Department to implement another evidence-based approach city-wide. The department embarked on identifying and implementing tactics, practices, and strategies proven to be effective, efficient, and economical. This effort, known as the Smart Policing Initiative, seeks to build on the concepts of hot spot policing by replicating the initial success of evidence-based practices on a broader level and encouraging exploration of new and unique solutions to criminal justice challenges. For more details on this evidence-based program, visit the Smart Policing Initiative site at:
http://www.smartpolicinginitiative.com/
How was the evidence-based solution implemented?
Interview with Community Leader Link:
Response Strategy:
Based on a general policing disorder strategy, the response was comprised of four approaches to reduce disorder-related crime and improve physical and social disorder in area hot spots:
- Increase misdemeanor arrests. component entailed the use of aggressive order maintenance techniques by police, including increased arrests for public order violations. This component was intended to take high-risk individuals off the street and to reduce disorder-related crime.
- Implement situational prevention strategies. This component was designed to improve physical and social disorder in target areas through the installation of improved street lighting and video surveillance, dispersing groups of loiterers, performing code inspections, cleaning up vacant lots, razing abandoned buildings, and evicting problem residents. Through partnerships with the city, police, and local community groups, these activities promoted a generalized sense of order in problem areas.
- Increase social service actions. This component entailed receiving assistance from social service agencies to help police increase social order, including providing youth with recreational opportunities, working with local shelters to provide housing for homeless individuals, and connecting problem tenants to mental health services. These activities were intended to create opportunities for high-risk individuals in targeted locations to assist police efforts in promoting social order.
- Incorporate research partnershipsThe Lowell Police Department initiated research partnerships to affirm its commitment to gathering and acting upon research gathered from the community.
- Lowell Implementation Project Plan
With the success and lessons learned derived from the hot spots policing program, the Lowell Police Department sought to use another evidence-based program to effect a department-wide philosophical change . The program was called the Smart Policing Initiative. The department initiated this change by using evidence to:
- Restructure the role of detectives. The department used evidence to determine how detectives could play a more proactive, rather than reactive, role in the occurrence of crime. This effort involved sharing information between law enforcement organizations, analyzing crime maps, and assessing offender bases to identify where to focus prevention efforts.
- Allocate limited staff. With limited budgets and resources, the Lowell Police Department found that using data was imperative to economically allocate diminishing funds and staff. The department used data to identify the specific location, days of the week, and times that additional officers should be placed in order to promote public safety while efficiently using resources.
- Refresh the CompStat process. The department restructured the way that it shared and used crime analysis information. Instead of simply presenting past crime analysis to patrol forces, the new CompStat process involves conversations focused on problem-solving. These discussions involved relevant stakeholders from the community, including university police and district attorneys, to share ideas and information, identify areas for improvement, and develop and assign specific action items.
- Develop working groups. The organizational change included the creation and execution of working groups involving the sergeant, crime analysts, various unions, representatives from research and development, and patrol officers in order to address and discuss training needs. This group served as a venue for members to identify existing training gaps and needs and to generate ideas around training enhancements. The group also shared lessons learned and best practices with each other to enhance their individual development.
- Incorporate research partnershipsThe Lowell Police Department initiated research partnerships to affirm its commitment to gathering and acting upon research gathered from the community.
Stakeholder Groups Involved:
Within the designated hot spot areas, the Lowell Police Department strengthened relationships with police, city services, community agencies, and local businesses in order to enhance collaboration. The Smart Policing Initiative involved greater collaboration through open discussions and working groups with representatives from the District Attorney’s office, academic institutions, unions, substance abuse treatment providers, and local businesses.
Impact and Outcomes
The outcome of this strategy resulted in measurable decreases in the amount of citizen calls for service and observed disorder within each hot spot area in Lowell, MA. An evaluation study found that the number of calls for service as a whole dropped nearly 20% ,which included statistically significant reductions in calls for major incidents such as disorder/nuisance, robbery, nondomestic assault, burglary/breaking-and-entering, and larceny/theft. Further, this strategy was effective in reducing social and physical disorder in more than 75% of hot spots in which it was implemented. The Smart Policing Initiative has resulted in a shift in the philosophical outlook and decision-making process throughout the Lowell Police Department.
Today, a glance at the organizational structure and philosophy of the Lowell Police Department reveals a drastically different outlook than the reactionary mentality that prevailed in the 1980s. The department now places greater emphasis on prevention and collaboration with stakeholders. This new outlook has resulted in working groups and partnerships with other law enforcement officials, local businesses, and community members as well as a focus on data to drive and evaluate decisions and allocate resources.
Lessons Learned
- Applying a well-strategized broken windows policing strategy results in cleaner communities and increased involvement and ownership to maintain order by citizens.
- Success experienced with evidence-based programs can be applied at a broader level and scope to achieve organization-wide change.
- Police Department officials can use evidence to ensure that they have a role in the prevention of crime rather than simply responding to crime as it occurs.
- Involving stakeholders in the prevention of crime results in greater access to information, maximizes the use of limited resources, and provides stakeholders with the responsibility to maintain and enhance public safety within the community.
- Progress is not achieved through absolute change, but rather through retaining and analyzing the experience gained in the past to identify or adapt the direction moving forward.




