National Gang Threat Assessment

February 2000
National Gang Threat Assessment
Cover photos PhotoDisc, Inc., Volumes 25 and 45.
The scourge of gangs affects American society at all levels, causing heightened fear, crime, and economic costs. These violent criminal groups affect public safety, community image, and quality of life in too many of our communities. The purpose of the National Gang Threat Assessment is to provide an accurate, comprehensive picture of the threat posed by gangs. It is anticipated that this document will help Federal, State, and local policymakers and law enforcement agency administrators grasp the severity and scope of the gang problem and assist them in formulating policy and allocating resources. The National Alliance of Gang Investigators Associations (NAGIA) prepared this report. The NAGIA is a cooperative organization currently composed of representatives from 16 regional gang investigators associations representing over 15,000 gang investigators across the country as well as Federal agencies and other organizations involved in gang-related matters. The NAGIA is a unique alliance of criminal justice professionals dedicated to the promotion and coordination of national antigang strategies. The NAGIA also advocates the standardization of antigang training, establishment of uniform gang definitions, assistance for communities with emerging gang problems, and input to policymakers and program administrators. The NAGIA is not meant to replace or duplicate the services provided by any other entity. Rather, it facilitates and supports regional gang investigators associations, the Regional Information Sharing Systems (RISS), as well as Federal, State, and local antigang initiatives. For additional information regarding this report or the NAGIA, please contact me at Nagiapres@aol.com. I also invite you to learn more about the NAGIA by visiting us on the Internet at <www.nagia.org>.
Wes Daily, Jr. President National Alliance of Gang Investigators Associations
February 2000

National Alliance of Gang Investigators Associations

Executive Summary
Introduction
The gang problem today is much more pervasive and menacing than at any time in history. Over the past 20 years, gang membership has crossed all socioeconomic, ethnic, and racial boundaries and now permeates American society. Gangs affect society in terms of heightened fear, crime, and economic costs. Today we face the consequences of the gang subcultures alarming growth over the past two decades: a decrease in public safety, community image, and quality of life.
General Trends
The following are some of the more notable gang trends identified in this assessment: Gangs are migrating from larger cities to smaller communities, a move fueled in large part by an increase in gang involvement in drug trafficking. Most gangs have members who are involved in drug trafficking to some extent, ranging from street-level sales to wholesale distribution. However, the level of drug trafficking by gang members varies regionally. Numerous law enforcement agencies report that some gangs involved in wholesale drug distribution have connections to major international drug trafficking organizations. While the overall violent crime rate has dropped nationwide, many smaller communities have experienced increases, sometimes double-digit increases, due to gang violence. Witness intimidation is dramatically affecting the prosecution of violent gang offenders. Incidents of gang-related violence and drug trafficking are being reported in record numbers on Indian Reservations. Gangs are disrupting many schools and have infiltrated businesses, the military, prisons, and law enforcement agencies.
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Gangs, for the most part, are unsophisticated with little or no hierarchical organizational structures; however, some are becoming much more organized and sophisticated, encompassing politics, technology (Internet), and the media. Outlaw motorcycle gangs are attempting to resolve their differences and are forming confederations to thwart the efforts of law enforcement. Young women are taking active roles in gangs, and gang-involved females are being incarcerated in increasing numbers.
Regional Trends
While all regions throughout the United States have experienced these general trendssignificant increases in gang migration, drug trafficking, and gang organization and sophisticationsome trends are specific to each region: Northeast Various Blood sets of the United Blood Nation have significantly increased in size and have moved their drug distribution operations from New York City to upstate New York and eastern Pennsylvania. Latin Kings and Netas have become more involved in political causes in order to appear legitimate and to shield their criminal operations from law enforcement scrutiny. Asian gang migration to the region is rising.
South Prison gangs, particularly in Texas and Florida, have an increasing influence on gangs in communities. Chicago-based Hispanic and black gangs have a major influence on gangs within the region and are expanding their drug operations. Asian and Hispanic gang activity is growing throughout the region.
Midwest Asian and Hispanic gangs have grown markedly. Hispanic gang growth is tied to the expansion of methamphetamine sales throughout the Midwest. Gangs in the Midwest are becoming more sophisticated and organized.
West Hispanic gangs have aligned into two factions, Norteos and Sureos, escalating violence throughout the region. Chicago-based gangs are spreading into the region and causing other gangs to become more organized. Native American gang membership is increasing at an alarming rate in rural areas.
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The National Alliance of Gang Investigators Associations (NAGIA) believes that implementation of certain recommendations will greatly enhance the ability of criminal justice professionals and communities to address the gang problem. A comprehensive action plan that includes interagency cooperation, training for law enforcement personnel and community leaders, and the creative use of available resources is critical to controlling gang growth and its impact on society.
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Table of Contents
Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii General Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii Regional Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iv Northeast . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iv South . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iv Midwest . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iv West . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iv Section I. Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 Section II. The National Gang Threat . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2 Gang Growth and Migration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2 Gang Denial . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3 Gangs and Drugs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4 Gangs and Violent Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5 Gangs and Witness Intimidation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6 Gangs in Schools . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7 Gangs in the Workplace . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8 Gangs in the Military . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 Gangs on Indian Reservations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 Gangs in Law Enforcement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11 Gangs in Politics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11 Prison Gangs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12 Outlaw Motorcycle Gangs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14 Female Gangs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15 Gangs on the Internet . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16 Gangs and the Media . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17 Section III. Regional Gang Assessments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19 Northeast . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19 General Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19 Migration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19 Drug Trafficking . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19 Violent Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20 Other Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20 South . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21 General Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21 Migration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22 Drug Trafficking . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22 Violent Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23 Other Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23 Midwest . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24 General Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24 Migration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24
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Drug Trafficking . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25 Violent Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25 Other Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 West . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26 General Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26 Migration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 Drug Trafficking . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 Violent Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 Other Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29 Section IV. Antigang Initiatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30 Suppression . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30 Federal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30 State and Local . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33 Intervention and Prevention . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 Federal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 State and Local . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37 Section V. Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43 Gang Denial . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43 Gang Definitions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43 Uniform Crime Reporting of Gang Activity . . . . . . . . . . . . . . . . . . . . . . . . . . 43 Law Enforcement Intelligence Sharing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44 Correctional Intelligence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44 Gang-Related Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44 Legislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45 Use of Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45 Gang Officers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45 Section VI. Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46 The National Alliance of Gang Investigators Associations . . . . . . . . . . . . . . . . . . . 47 Notes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51
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National Gang Threat Assessment February 2000

Section I. Background
Over the past 20 years, the gang problem has grown exponentially. Today, communities across the country face a gang population that has crossed all socioeconomic, ethnic, and racial boundaries and now permeates American society. According to conservative estimates, the current national gang population has ballooned to over 30,000 gangs with over 800,000 members.1 These statistics are for youth gangs only and do not include prison gangs or motorcycle gangs. The lack of accurate reporting on gangs and gang activity only enhances their threat. There is no common definition of a gang; therefore, throughout this report the term gang is used as it is understood by this documents contributors. The need for a common definition of gang, gang member, and gang crime is addressed in the Recommendations section of this report. The explosion in the numbers and influence of gangs is rooted in the breakdown of the traditional family structure and a lack of proper parenting. The absence of strong family and community support has created an environment in which gang values have replaced traditional ethics and standards. These factors precipitated the active participation of youth in the gang subculture. The epidemic of crack cocaine in the 1980s also accelerated the growth and migration of gangs. The emergence of crack has stimulated the growth and status of gangs just as Prohibition did for the ethnic gangs of the 1920s.2 Increased profits and a perceived lack of law enforcement awareness outside of large urban areas were, and continue to be, primary factors in the establishment of entrepreneurial interstate drug distribution networks. Gangs used crack cocaine to reap enormous illicit profits, first in their own neighborhoods, and ultimately across a large portion of the United States. The emergence of crack has stimulated the growth and status of gangs. The vast majority of gangs across the country are unsophisticated with little or no hierarchical organizational structures. However, the association of these unstructured gang sets sometimes manifests itself in some loosely aligned gang confederations that have a significant impact in many communities. The Folk and People Nations emanating from Chicago and, to a lesser extent, the Bloods and Crips from Los Angeles are examples of this recent phenomenon.3 As these gangs move from traditional urban gang areas to other parts of the country, they exchange gang lore and form working alliances with their counterparts, resulting in hybrid gangs that threaten the safety and peace of those communities. This phenomenon is particularly evident in the Midwest and South where gangs have migrated from Los Angeles, Chicago, and New York City to form alliances with local gangs. Many communities are now seeing Folk Crips and People Blood gangs.
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Section II. The National Gang Threat

Gang Growth and Migration
In the absence of strong family and community support, gang values have replaced traditional ethics and standards. In recent years, local government officials, law enforcement professionals, and community leaders from smaller cities once thought to be immune to the crime and violence associated with gangs have witnessed the emergence and growth of gangs. They have gone so far as to identify the growth of gangs as an epidemic. Much of the gang growth across the United States can be attributed to the influence of the gang subculture rather than actual gang migration. Many communities are experiencing gang emulation or localized imitations of nationally recognized gangs. Familiar gang names from Chicago and Los Angeles are appearing in cities across the country, with no apparent connection to these nationally known gangs. Culturally and racially mixed gangs are growing. The migration of gang membersnot the entire ganghas also contributed to the growth of gangs. They migrate and form a new gang by recruiting members from the local area. The National Youth Gang Center reports that 89 percent of the respondents to its 1997 survey indicated that some gang members had migrated to their jurisdictions and estimated that 23 percent of their gang members were migrants. Small cities and rural counties reported that, on average, more than 36 percent of their gang members had migrated from other jurisdictions.4 Reports of big-city gang members dispersing across the nation seeking new markets for drug distribution have fueled concerns about gang migration. In communities where drug trafficking is their primary criminal activity, gangs battle for market share in the drug trade, rather than over turf as they did in the late 1980s and early 1990s.5 Gang migration from larger cities to smaller communities occurs for many reasons: Family relocations Moves in connection with training and rehabilitation programs Attempts to avoid apprehension and prosecution Attempts to avoid retribution from rival gang members The opening or expansion of drug markets for higher profits Less rivalry and competition An environment where it is easier to intimidate and manipulate the community Limited antigang resources and lack of gang recognition or awareness by law enforcement
When gangs were primarily an urban problem, each gangs members were usually of one racial or ethnic group. As gangs migrated into the suburbs and rural areas, they began to recruit members from various racial and ethnic groups. Gangs today are increasingly multicultural, multiracial, and multiethnic. According to Detective Wes Daily, Jr., President of the NAGIA, It used to be young African-American males were the ones with their pants dropped below their waistlines, shoes untied, and hats flipped to the side. Today, street gangsters share this style and trend with the white youth of America. Culturally and racially mixed gangs are growing. Teachers, law enforcement professionals, parents, businesses, and corporations need to be educated on the subject. This is no longer about them, it is about all of us.6
The following charts depict the growth of gangs and gang membership since 1975. While part of the apparent growth is the result of a lessening of gang denial, experts agree that there has been a substantial growth in the number of gangs and gang members over the past two decades. The trend revealed from various studies is disturbing.7
Gangs 19751997
40,000
Number of Gangs 30,818 30,500
The most recent estimates reveal that more than 2,900 cities and towns with populations under 25,000 have active gangs.8 Gangs in these smaller jurisdictions place a great burden on community and law enforcement resources.
Gang Members 19751997

1,000,000
Number of Gang Members 846,428
30,000
750,000
23,388
816,000 664,906
20,000
500,000
10,000
4,881 1,730 2,285 1,439 8,625
555,181
250,000
97,940
249,324
0 1975 1982 1988 1992 1994 1995 1996 1997
55,000
120,636
0 1975 1982 1988 1992 1994 1995 1996 1997
Sources for both charts: National Youth Gang Surveys for 19951997
Gang Denial
Community denial of the presence of gangs significantly hampers effective prevention of gang growth and development during the early stages when violence is limited and active measures can effectively impact the problem. By the time communities and institutions acknowledge that they have a gang problem, the situation may be out of control.9 Gang denial often begins in the home. According to one expert, many gang members come from dysfunctional families that lack a positive male influence and role model. The central figure is often a mother who many times denies any problem and protects the child from accusations of crime or delinquency by making excuses.10 Societal disbelief that juveniles could commit traditionally adult crimes is another factor contributing to denial of the gang problem.11 For the last century, society has legislated to protect children. Recent legislation has been designed to protect society from delinquent children. A more commonly held belief is that communities and institutions continue to deny gang problems for political, economic, and perceptual reasons. Public denial of the existence of gangs and a lack of proactive community measures are major contributing factors to the alarming increase in the number, size, and strength of gangs.12 California Gang Investigators Association President Wes McBride stated that denial begins with the local politicians. If they deny it, then they dont have to put the resources into dealing with the problem.13
Gangs and Drugs

Most gangs have members who are involved in drug trafficking to some extent. However, the level of drug trafficking by gang members varies regionally (see the Regional Gang Assessments section of this report). According to respondents to the National Youth Gang Centers 1997 survey, it is estimated that 42 percent of gangs were involved in the street sale of drugs and 33 percent were involved in drug distribution for the specific purpose of generating profits for the gang.14 More than 90 percent of the jurisdictions reporting gang activity in the NDIC National Street Gang Survey Report1998 stated that their gangs were involved in local drug sales, while 47 percent reported gang involvement in interstate drug trafficking. Drug trafficking drives, binds, and reinforces gang culture by the criminal activity itself. Gang involvement in drug trafficking ranges from street-level sales to wholesale distribution. The typical scenario of gang participation in drug trafficking involves the entrepreneurial gang member who shifts a retail drug trafficking operation into an adjoining community or state. This move could be either temporary or long-term. On the other hand, the Black Gangster Disciples exemplify an organized interstate drug trafficking gang that has extended its network to over 40 states. In 1997, seven leaders of the gang were convicted of a drug conspiracy that the U.S. Attorney alleged took in over $100 million a year in cocaine and heroin sales.15 Numerous law enforcement agencies report that some gangs involved in wholesale drug distribution have connections to major international drug trafficking organizations. Drug trafficking by gangs primarily involves cocaine and marijuana. However, gangs in California, the upper Midwest, and New England are increasingly involved in heroin trafficking. Methamphetamine trafficking by gangs is common in the western half of the United States and appears to follow the migration of Hispanic gangs eastward.
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Drug trafficking drives, binds, and reinforces gang culture by the criminal activity itself, as well as providing lucrative profits for the gang and individual gang members. Major aspects of gangs and drugs are best illustrated through responses provided for the NDIC National Street Gang Survey Report1998. The following summaries are from survey responses: Drug Trafficking is a Key Economic Crime for Gangs The moneymaker for our gang members is the sale of drugs. Most of our crime is a spin-off of the drug business. (St. Paul, Minnesota, Police Department) Narcotics sales have become the gangs number-one activity because of the lucrative amount of money that can be made. (Chicago, Illinois, Police Department)
Drugs Contribute to Gang Violence Most of the violent crimes involving these gangs are the results of their drug trafficking. (Phoenix, Arizona, Police Department) Gangs are heavily tied into our drug trade and it is well known that drugs also greatly influence the crime rate and crime in general. We've had an increase in gang-related shootings in 1997. (Akron, Ohio, Police Department)
Drugs Influence Gang Migration We are currently experiencing migration from different cities in California. The reason for this migration is narcotics-related. Instances where new subjects come in and set up narcotics activity are on the rise. We are also seeing an influx of gang members from both Oklahoma City, Oklahoma, and Wichita Falls, Texas. Gang members involved in narcotics are about 50 percent of the narcotics problem, with the vast majority being involved in the trafficking of crack cocaine. (Lawton, Oklahoma, Police Department) The Rolling 60s members have contacts in California, Oregon, Washington, and now Montana. These individuals are into narcotics
(interstate and local), money laundering, and weapons violations. (Great Falls, Montana, Police Department) Drugs Cause Gangs to Change Their Criminal Culture and Tactics The Bloods and Crips in some cases have joined forces to sell crack cocaine. They are overlooking the red and blue in their pursuit
of money. This trend is most noticeable in older gang members. (Portland, Oregon, Police Bureau) A recent trend in the Arlington Heights area is the aligning of Folk and People gangs with each other for the benefit of narcotics trafficking. (Arlington Heights, Illinois, Police Department)
Gangs and Violent Crime

Gang violence is a natural outgrowth of gang presence and therefore threatens many communities. As gangs and the gang subculture spread across the country, the gang-related violence that was previously limited to urban areas now reaches into suburban and rural communities. The National Institute of Justice estimates that the financial costs of violent crime to American society are well over $400 billion a year.16 Adding pain and suffering, as well as the reduced quality of life, the total climbs to $450 billion each yearroughly $1,800 for each man, woman, and child in the country. The figures do not include the cost of running the criminal justice system or private actions taken to cut crimesuch as hiring guards or buying security systems.17 According to one study, the cost of a homicide with four arrested suspects could reach almost $2 million. Included are costs for juvenile hall and jail for 1 year for four suspects, $85,710; a 2-week trial, $61,000; crime scene investigation, $13,438; medical treatment, $4,950; autopsy, $2,804; and State incarceration costs if the four suspects are convicted and serve 20 years, $1,796,625for a grand total of $1,964,527.18 Although crime in general has decreased, gang crime may be increasing. According to the Department of Justice, violent crime rates have dropped over the past few years. However, it should be remembered that the overall crime rate remains two-and-a-half times higher than it was in 1960. While the overall violent crime rate has dropped nationwide, cities such as Indianapolis, Indiana,19 and Seattle, Washington,20 have seen increases and states like Iowa and South Dakota have experienced doubledigit increases.21
Gang members are increasingly young and violent. They commit violent crimes ranging from assault to homicide.
National crime statistics do not currently distinguish between gang-related crime and other crime. Therefore, it is not known whether gang crime is decreasing along with the overall rate. Although crime in general has decreased, gang crime may be increasing. Evidence that gang crime may be increasing can be found in responses to the NDIC National Street Gang Survey Report1998. Many midsize and smaller cities reported that they were experiencing increases in gang-related violent crime even in the face of national trends showing decreases in overall crime. They attributed some of the rise to the influx of gangs from larger jurisdictions into their areas. Some law enforcement officials
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reported that even in jurisdictions with fewer gang-related violent crimes, those crimes were more serious.22 Following are selected comments from the survey respondents regarding gang-related violent crime trends in their jurisdictions: Age ranges for gang members are younger, and younger members tend to be more violent, with their choice of weapon being any 9mm semiautomatic. Uzis are said to be the second weapon of choice. (Erie, Pennsylvania, Bureau of Police) The most disturbing trend in our town is the violent behavior toward the average citizen as
well as toward rival gang members. (Paterson, New Jersey, Police Department) The main concern in the Los Angeles area has been the frequency of violent acts toward law enforcement. The enactment of the Three Strikes Law has had a major influence on the upswing in attacks on officers, but it is just one of many factors. (Los Angeles, California, Police Department) As the gangs grew, so did their violence. The gang-associated violence in our area has become more widespread and lethal. Moreover, criminal gang members are getting younger every year. (Green Bay, Wisconsin, Police Department)
Gangs and Witness Intimidation

President Clinton announced during his weekly radio broadcast on January 11, 1997, One of the most difficult problems facing law enforcement is the power of gang members to thwart the criminal justice system by threatening and intimidating the witnesses against them.23 Witness intimidation is not a new problem according to the Justice Department's 1996 report, Preventing Gang and Drug-Related Witness Intimidation. A number of prosecutors and police investigators reported the problem had worsened and spread dramatically with the advent of crack cocaine and the growth of drug gangs in many urban centers since the mid1980s.24 A survey of 192 prosecutors found that intimidation of victims and witnesses was a major problem for 51 percent of prosecutors in large jurisdictions (counties with populations greater than 250,000) and 43 percent of prosecutors in small jurisdictions. An additional 30 percent of prosecutors in large jurisdictions and 25 percent in small jurisdictions considered intimidation a moderately serious problem. Several prosecutors estimated that witness intimidation occurs in up to 75 to 100 percent of the violent crimes committed in some gang-dominated neighborhoods.25 While the problem of witness intimidation may seem insurmountable, some approaches enable witnesses to testify and thereby convict thousands
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of violent felons who might otherwise go free.26 The Justice Department report details a comprehensive approach to prevent witness intimidation with numerous examples of local, State, and Federal programs that are working. In addition, the House of Representatives voted in February 1998 to make it a Federal crime to cross State boundaries with the intent of influencing a witness in a State criminal trial. The Witness Protection and Interstate Relocation Act of 1999 has been reintroduced as House Resolution 186 in the 106th Congress. One of the most difficult problems facing law enforcement is the power of gang members to thwart the criminal justice system by threatening and intimidating the witnesses against them. Following are summaries of news articles involving gangs and witness intimidation throughout the nation: New York, New York. The wife of a Latin Kings gang member was arrested for conspiracy to commit murder. She allegedly conspired to kill a potential witness in her husbands trial. The woman is accused of leaving $500 for an undercover officer in an attempt to have the witness and his wife killed.27
Charlotte, North Carolina. Peter Rollack, founder of the Sex, Money, and Murder gang, allegedly ordered the killing of David Mullins in letters sent from a county jail in Charlotte. Rollack feared that Mullins was going to testify against him during Rollacks Federal murder trial.28 Omaha, Nebraska. A jury found gang member James Myers guilty of shooting Lynette Mainelli twice in the head at her apartment.
Prosecutors argued that Mainelli was shot because she witnessed another member of the Murder Town Gangsters kill a rival gang member.29 Los Angeles, California. The key witness in a murder trial of seven alleged Asian gang members testified after his father was shot to death execution style at his home. Investigators attributed the shooting to revenge or intimidation.30
Gangs in Schools
In a survey of students on school crime, the Departments of Education and Justice found that the percentage of students reporting gang presence at school nearly doubled between 1989 and 1995, increasing from 15.3 percent to 28.4 percent. The survey also found that in 1995, 7.5 percent of all students who reported gangs in their schools also said they had been victims of violent crime, compared to only 2.7 percent of students who reported no gangs in their schools. 60 percent admitted that their members sell drugs at school. The interviews also found that more than half of all gang members acknowledged that members of their gang assaulted teachers, and about 70 percent admitted that their gang assaulted students. The following are recent examples of the impact of gang activity in schools: Fairfax County, Virginia. An 18-year-old member of the Tiny Rascal Gangsters was sentenced to life in prison for the gang-related shooting of a 17-year-old high school student. The victim was shot in the head with a rifle at close range as he sat in his car in the high school parking lot, where he had gone seeking safety from gang members. Napa, California. Three teenage children were shot while waiting for a school bus. The incident was one of several in an ongoing feud between Norteo and Sureo gangs.
Schools are affected by gang culture, which has crossed all socioeconomic, ethnic, and racial boundaries.
The negative impact of gangs on school safety is reinforced by studies of gang members in Ohio, Colorado, and Florida. Interviews with acknowledged gang members revealed that approximately 80 percent stated that their gangs take guns and knives to school, and more than
Preventive efforts have been hampered in many schools, as they have in the broader communities, usually by denial, image concerns, and related political factors. Recently many schools have successfully worked in conjunction with criminal justice officials, social service agencies, and other youth service providers to prevent and effectively manage gang-related activities at schools and in neighborhoods. Methods for combating gangs in the community can be applied in schools. An effective approach to dealing with gangs includes suppression, intervention, and
prevention. From the school perspective, this includes gang and violence prevention curricula, conflict resolution programs, professional security and crisis preparedness measures, policies prohibiting gang activity, and firm, fair, and consistent
discipline. Gang awareness training for all school staff is necessary, along with strong coordination and networking with law enforcement and criminal justice officials, social service agencies, Government leaders, and community representatives.31
Gangs in the Workplace

In a distinct departure from their previous criminal activity, some gangs are moving from the streets to the corporate world. One reason for this trend is their desire for larger profits obtained from low-risk crimes like money laundering and product theft. These crimes provide high profits while giving the impression of legitimate business operations. Some of the factors allowing gangs to enter the workplace are changing workforce demographics, corporate restructuring, and a general reduction in company loyalty because of the transient nature of many employees. or during shipment), and illegal resale of employee discounted merchandise.32 High-value goods and services, such as microchips and airline tickets, are gang targets. Microchips are worth more by weight than drugs or gold.33
Businesses reported to have discovered gang members in their workforce include BankAmerica Corporation, United Parcel Service, and Silicon Valley computer firms. Service industries and businesses infiltrated by gangs include security, maintenance, mailroom, warehousing, shipping, hospitality, and a pharmaceutical company.34 In an attempt to eliminate gangs from the workplace, companies are training employees to recognize the indicators of gang activity such as dress, hand signs, graffiti, tattoos, and types of criminal behavior. Companies have increased efforts to conduct more thorough background checks of potential employees. The juvenile justice system, which usually seals records, can defeat these background checks. Therefore, human resource personnel now look for specific indicators such as: Forged Social Security or immigration documents GED records indicating high school equivalency earned in prison Unexplained time gaps in work history References from businesses no longer in operation Setup business and personal references who are usually fellow gang members
Gang members seek employment in businesses that offer opportunity for high-profit crimes such as microchip theft.
The demographics of gang members have changed markedly. Some gang members now have college degrees and blend in with other postcollege job applicants. The following are some prominent trends in gang-related criminal activity within U.S. businesses: The types of crimes perpetrated upon businesses by gang members include money laundering, spying (to obtain data to target other businesses for robbery), extortion, drug trafficking, product theft (either at the company
Gangs in the Military

Gangs are a significant problem for the military. Since the early 1990s the Armed Forces have taken steps to control the gang problem. The Secretary of the Armys Task Force on Extremist Activities conducted an investigation in 1996 and found little extremist activity in the Army; however, the Task Force concluded that gangs are a significant security concern for many soldiers.35 Gang members in uniform use their military knowledge, skills, and abilities to commit and facilitate serious crimes. The following are some of the most prominent examples of gang-related drug trafficking, weapons dealing, and violent crime involving service members: Drug Trafficking. In 1996, Army medic Sergeant Gerald Ivey was convicted for recruiting several soldiers to travel to Fort Bliss, Texas, to pick up marijuana and cocaine and deliver the drugs to him. Ivey repacked and sent the drugs to Black Gangster Disciples in Gary, Indiana, for distribution. Ivey was purchasing weapons in Colorado and shipping them to gang members in Gary.36 Weapons Dealing. In May 1992 at Fort Ord, California, gang investigators discovered that Crips and Bloods were attempting to obtain military weaponry including hand grenades and hand-held rocket launchers.37 Violent Crime. A soldier drove gang members to and from the scene of a brutal murder at Fort Lewis, Washington. The soldier waited while two members of the Cedar Block Piru Bloods of Los Angeles entered the home of a sergeant on an overseas tour and murdered her husband and three children. The gang members mistakenly believed that the sergeant's husbandwho was allegedly involved in a Los Angeles-based gang drug distribution networkhad informed on their activities to local police.38 Gang members are also involved in extortion, loan sharking, and check kiting. Many gang members have fraudulently enlisted in the military by failing to report past criminal records.39 Compounding the problem are reports that dependent children of service members are involved with gangs. Several law enforcement officials reported in the NDIC National Street Gang Survey Report1998 that gangs spread to their communities when such dependents moved into jurisdictions adjacent to military bases. Military law enforcement personnel use a number of proactive measures to identify gang members within the ranks. They establish liaisons with local law enforcement agencies, conduct mandatory tattoo checks at reception centers, and perform health and welfare inspections. Military Police gather intelligence in routine traffic stops, in casework, and through confidential sources.40
Gangs on Indian Reservations

The dramatic escalation of violent crimes in Indian Country during this decade can be attributed in part to the increased presence of gangs. According to a senior Bureau of Indian Affairs agent, the crime rate on reservations is up 83 percent and much of this increase is gang-related.41 Homicides, rapes, assaults, robberies, kidnappings, and weapons and drug trafficking are being reported in record numbers. Native American youth experience many of the same problems as juveniles in the rest of the country but lack the support structures and resources to deal with them. Gangs at varying stages of evolution and sophistication are found on virtually all reservations. However, the majority of gang activity in Indian Country is unstructured; individual members, rather than the gang, deal drugs. Gangs demand respect and intergang rivalry causes most gang violence. Identification of membership is difficult because Native American gang members often switch gang alliances depending on which gang is on top.
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Native American gangs often imitate black and Hispanic gangs. They use symbolism, hand signs, language, and structures consistent with the Folk and People Nation or the Bloods and Crips. Native American gangs are more interested in strength in numbers than in turf or neighborhoods. They use violence as a means to gain status within their gang, with rival gangs, and in the community. It is more common for non-Native Americans to join Native American gangs than it is for Native Americans to join black, Hispanic, Asian, white, or other gangs. Abuse of drugsincluding alcoholappears to be a consistent factor in gang violence in Indian Country. Native American youth join gangs for the same reasons as other youth. The Native American population is young (median age 22), and gang members usually range between 12 and 17 years of age. Peer pressure to join a gang is intense. Friendship, pride, and a sense of belonging also lure Native Americans into the gangs. Poverty on reservations is more than twice the national average and the death rate from alcoholrelated causes is five times that of the rest of the nation. Extremely high unemployment in Indian Country exacerbates the problem. Most reservations lack even basic recreational activities. Furthermore, the majority of Native American gang members come from dysfunctional families with emotional as well as economic needs. These shortcomings, combined with insufficient parental supervision, create a void that gangs easily fill. Gangs, even if loosely formed, are found in most reservation schools. Some students schooled on reservations participate in gangs because of a perceived necessity to choose sides. Recognition, reputation, and status among their peers are common reasons for joining a gang. Off the reservation, Native Americans often suffer discrimination and band together for support and companionship. Abuse of drugsincluding alcoholappears to be a consistent factor in gang violence in Indian Country. Alcohol leads the list, followed
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by marijuana. Marijuana is an easily cultivated crop. The lack of detection and extermination on most reservations facilitates the availability of marijuana. Gang members sell reservation-grown marijuana on and off the reservation. They usually spend the proceeds on other drugs and weapons. Methamphetamine production is becoming a problem on reservations. Remote locations on the reservation provide cover, encouraging the spread of clandestine methamphetamine labs. Given the affiliation of some tribes with Hispanic populations and the proximity to the Mexican border, an increase in methamphetamine sales and use and the appearance of black tar heroin on reservations are expected. Gang members purchase cocaine and heroin for their own use or traffic these drugs to purchase weapons. The majority of drug transactions appear to take place off the reservations. Most violent criminal activity on reservations appears to be perpetrated by individual gang members or small groups from a particular gang. Native American gangs commit violence at the same level as street gangs, but without a specific gang agenda (such as turf or territory). Gang members commit crimes ranging from vandalism to homicides. Other gang-related crimes include assault, rape, burglary, interstate transportation of stolen property, sexual assault, witness intimidation, extortion, robbery, arson, drive-by shootings, and walk-by shootings. Native American gang members use the same weapons as their urban counterparts. The proximity of the reservation to a city or town determines weapons availability. Weapons of choice range from .22-caliber handguns to AK-47s. Gang members use knives, chains, baseball bats, tire irons, and rocks when handguns are unavailable. Gangs on the reservation often trade drugs for weapons or obtain them through breaking and entering operations.42
Gangs in Law Enforcement

Gangs have even infiltrated the ranks of some law enforcement agencies across the country. In interviews of convicted gang members conducted in 17 states by the National Gang Crime Research Center, more than half said they were aware of gang members who were also police officers.43 Gang members as law enforcement officers present a particularly insidious problem because they act as invaluable sources of intelligence to the gang. These individuals are capable of jeopardizing cases under investigation, placing other officers in danger, exposing witnesses of gangrelated crimes to intimidation or death, and compromising law enforcement tactics and sources of information. At least 15 Chicago police officers from one district were charged with gang-related crimes or investigated for membership in a gang during a 3-year span ending in 1995. The officers were reported to be members of the Latin Kings gang. In another incident, a gang investigator with the Chicago Police Department was convicted of aiding and abetting the Black Gangster Disciples narcotics operation. She was the live-in girlfriend of the gangs second-in-command.44 A New York City police officer pleaded guilty in 1997 to charges that he had supplied confidential information, including the names of witnesses and informants, to the Yellow Top Crew, a murderous $100,000-a-week crack cocaine gang.45 An Orange County, California, Deputy District Attorney was arrested in June 1999 on charges of conspiring with a Hells Angels leader in a drug trafficking and money laundering ring. The Deputy District Attorney was accused of providing information on the status of ongoing police investigations to the gang leader.46
Gang infiltration of law enforcement includes not only sworn officers but also civilian personnel and volunteers with access to much of the same information as sworn personnel. For example, a police department volunteer, an acknowledged prior gang member assigned to the Youth Gangs Program Office in Portland, Oregon, was convicted of bank robbery for using a police radio while acting as a lookout during the crime.47 In response to this problem, many police departments have tightened entrance requirements and are conducting more extensive background checks in an effort to stop gang members and other criminals from infiltrating their departments.
Gangs in Politics
Although efforts to influence the political process have thus far been limited, the potential of gangs cannot be underestimated. Their ability to mobilize large numbers of people, registered voters or not, can gain media attention and have a tremendous influence on public opinion. Currently, Chicago gangs appear to be in the forefront of gang political activity. The best known Chicago gang-affiliated political action organization was 21st Century VOTE (Voices Of Total Empowerment). Organized by the Black Gangster Disciples in 1993,48 it quickly gained notoriety by conducting peace summits and health care reform rallies. Gang leaders also had members campaign for candidates and conduct voter registration drives.49 These activities won support from schools, churches, and community leaders including former Chicago Mayor Eugene Sawyer. Although none of the 21st Century VOTE candidates were successful, one candidate and spokesman whose membership in the gang was unknown to the White House was admitted in January 1994 to attend a meeting with President Clinton about combating crime.50 Larry Hoover and other Black Gangster Disciples leaders were convicted in 1998 of a wide-ranging drug conspiracy that included laundering money through 21st Century VOTE
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and Save the Children Promotions. Gang members were required to purchase tickets to concerts and other events sponsored by these organizations, which were used as fronts to launder the proceeds of the gangs drug trafficking operations.51 In 1996, 21st Century VOTE was officially dissolved; however, the Black Gangster Disciples are continuing to promote an image of legitimacy through an organization known as United in Peace. Today in Chicago, members of the Conservative Vice Lords work for candidates through the Concerned Voter's League.52 This organization has become so mainstream that in many cases a local politician may ask for assistance from the League.53 Other Chicago gang political activity involves the United Latino Organization, a group organized by the Spanish Gangster Disciples.54 Reportedly, members of the Maniac Latin Disciples have attempted to influence an aldermanic election by intimidating voters at the polling place.55 As gangs continue to become more organized, their political activities will increase. In New York City, the Almighty Latin King Nation assists in voter registration, distributes campaign fliers for their chosen candidates, and
is accused of intimidating voters to favor their candidates.56 To appear legitimate, the gang incorporated itself; however, it incorporated as a for profit organization, probably not understanding the ramifications. The gang has since corrected this error and filed as a nonprofit organization eligible for donations of office space and equipment.57 In another effort to appear legitimate, Latin Kings leader Antonio Fernandez, aka King Tone, attempted to use the media to change the gangs image. He appeared on television and radio to promote his agenda of knocking down the wall of City Hall by learning the right trigger to pullthe voting trigger.58 In January 1999, Fernandez was convicted in New York City for trafficking cocaine and heroin. As gangs continue to become more organized, their political activities will increase. The more business-savvy gang leaders will see the inherent benefits in this type of activity and exploit it. Rules governing the reporting of monetary contributions to these organizations make them prime vehicles for concealing money derived from criminal activities.59 The claim of political action status may deter law enforcement agencies from adequately investigating illegal activities associated with these organizations.
Prison Gangs
Gang membership is growing significantly within correctional facilities, resulting in major problems for law enforcement both inside and outside prisons. The environment in most U.S. prisons is ripe for recruiting and controlling gang members because inmates tend to form associations for self-protection along racial, ethnic, and cultural lines. Compounding the problem, many gang members are incarcerated near their communities where they continue to have significant influence outside the correctional facility. By the late 1980s, prison gangs began to establish control over gangs outside the prison walls. In 1986, the Presidents Commission on Organized Crime identified five prison gangs which met the criteria of organized crime groups: the Mexican Mafia, La Nuestra Familia, Aryan Brotherhood, Black Guerrilla Family, and Texas Syndicate. The proliferation of gang crime and the incarceration of thousands of gang members during the 1980s increased the problem of gang membership in prisons. The Crips, Bloods, Latin Kings, Barrio Aztecas, Black Gangster Disciples, and many other powerful street gangs have now become formidable prison gangs.
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gangs in southern California through wholesale drug distribution. The United Blood Nation gang, created inside Rikers Island jail in 1993, has spread to the streets of New York City. As a rite of initiation, this violent gang required candidates to slash an innocent victim. In 1997, the gangs membership was reported to be 1,000 and they were responsible for 150 random slashings per month.60 In 1997, Black Gangster Disciples Chairman of the Board Larry Hoover was convicted of runningfrom prisona $100 milliona-year drug operation that stretched across 35 states. Hoover ran the gang like a Fortune 500 corporation and ruled his outlaw Black Gangster Disciple Nation through terror. Many inmates are incarcerated near their communities where gang members continue to have significant influence. Many community and law enforcement officials mistakenly believe that when a gang member is incarcerated, the threat disappears. This belief is incorrect for three reasons. Many gang members remain in a gang or join another gang while in prison. A large percentage of incarcerated gang members are not imprisoned for life and will return to the community. Approximately 80 percent of gang members currently housed in the Connecticut Department of Corrections will eventually be released. While incarcerated, gang members often continue criminal activity that affects the community.61
Imprisoned gang leaders are not always deterred from criminal activity; they often exert more control over members both inside and outside prison.
According to many criminal justice professionals, gang leader incarcerations have done little to disrupt gang activities. In many cases, high ranking gang members exert increased control and discipline of their gangs from prison. In contrast to ordinary gangs, gangs operating both inside prison and on the street are organized to operate beyond the lifetime of individual members and survive leadership changes. They have hierarchical structures ordered by ranks and based on power and authority, similar to a corporation. This structure insulates gang leaders from direct involvement in criminal activity, making it difficult to use traditional law enforcement techniques to charge and prosecute them. The following are reports of gangs controlled by incarcerated members: The Mexican Mafia (La Eme) controls most of the Hispanic gangs in southern California by imposing a street tax on drug sales. The Mexican Mafia also exerts influence on other
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Outlaw Motorcycle Gangs

In February 1997, Attorney General Janet Reno characterized the Hells Angels Motorcycle Gang as one of the most notorious drug cartels based in the United States.62 The Hells Angels and more than 300 other outlaw motorcycle gangs (OMGs) are involved in almost every facet of criminal activity. OMGs hold the distinction of being one of the few forms of organized crime to begin in the United States and later be exported to the rest of the world. the military have given training in destructive techniques and provided stolen military weapons to OMG members.63 OMGs are sophisticated, efficient, and well organized criminal enterprises. They try to distance themselves from the old stereotype of drugusing, unkempt bands of barbarians on loud motorcycles. OMGs have put on the veneer of community-oriented motorcycle enthusiasts and attempted to sway public opinion in their favor by donating to charities and holding toy runs for sick children. However, their main goal is to make money by any means, expanding their territories to achieve this objective. The primary source of income for many OMGs is the production and distribution of drugs. The production and distribution of methamphetamine, once known as the biker s drug, was largely controlled by OMGs until the recent increase in methamphetamine production by Mexican organizations and others. Although they still produce some methamphetamine, OMGs now operate distribution networks to handle cheaper Mexican methamphetamine in areas where it is available. On the U.S. Northern Border OMGs control the production and distribution of high-grade marijuana, and on the East Coast they have made inroads into cocaine distribution networks. According to some law enforcement authorities, OMGs have forged ties with major drug trafficking organizations, traditional organized crime families, and gangs to facilitate their drug-related activities. They also use foreign chapters of their gangs or alliances with foreign OMGs to bring drugs into the country from Europe and South America.64 OMGs are involved in criminal activities other than drug distribution. Prostitution, theft, fraud, witness intimidation, blackmail, and murder-for-hire are just a few of the methods used by OMGs to generate income and expand their territories. To facilitate these activities and provide a method for laundering money, many
The Hells Angels is one of the few criminal organizations that began in the United States and has now spread to other countries.
The influence of OMGs has touched all levels of Government. OMG associates are found working in law enforcement agencies, at Departments of Motor Vehicles, and at sensitive locations as contractors working on phone and computer systems. They constantly attempt to recruit members or associates who have access to areas where gang intelligence is stored or gathered, or who may be able to gather counterintelligence on law enforcement operations or individual officers. Associates who are current or past members of
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OMGs or members operate small businesses such as bars, motorcycle shops, towing companies, tattoo parlors, and construction companies. The major OMGs have recently formed confederations. In late summer 1998, members of the Hells Angels, Outlaws, Pagans, and Bandidos secretly met to work out details of how they could stop killing each other and focus on law enforcement. The OMGs believed law enforcement had success investigating them over the last 10 years because they committed overt acts against one another. Consequently, they agreed to stop the infighting and turn their attention to law enforcement tactics such as traffic stops, field interviews, and any operation that they can term harassment. OMG members use the threat of lawsuits to deflect law enforcement attention away from the daily activities of the gangs.65
According to Lt. Terrence P. Kinneen, President of the International Outlaw Motorcycle Gang Investigators Association, threats against and confrontations with law enforcement by OMG members appear to be increasing.66 The primary source of income for many OMGs is the production and distribution of drugs. It should be noted that the vast majority of biker groups and motorcycle clubs are legitimate organizations that exist for the benefit of their members. The American Motorcyclist Association, through its 235,000-member organization, sponsors or coordinates thousands of motorcycle and community events each year.
Female Gangs
Young women are taking active roles in gangs, and gang-involved females are being incarcerated in increasing numbers. Department of Justice statistics reveal that while the number of male inmates increased 108 percent from 1988 to 1998, the number of female prisoners rose by over 172 percent during the same period. Research reveals that females between the ages of 12 and 18 who have low self-esteem, come from dysfunctional families, and have a history of victimization are most likely to join gangs. These females are more likely than males to be unemployed and to have been the victims of physical and sexual abuse. The NDIC National Street Gang Survey Report1998 indicated that 43.6 percent of gangs identified as significant by survey respondents had some female members and 35 gangs were exclusively female. Many females join gangs for the same reasons that males dothe gang provides friends, money, drugs, power, and excitement, and perhaps most importantly a sense of family. Some of these young women were raised in a gang culture where their families have been in gangs for generations, and therefore they view gang membership as a normal and acceptable rite of passage. In fact, recent research indicates that females with female friends, boyfriends, or siblings in a gang are most likely to be in a gang themselves. Law enforcement should be aware of the changing role of females in gangs. Some have increased their responsibilities, risk taking, and violence on behalf of the gang. They have moved from affiliate status to membership. While continuing to offer emotional, sexual, and physical support, females are taking more risks as carriers of drugs and weapons and suppliers of intelligence from rival gangs and from strategic jobs such as the Department of Motor Vehicles, utility companies, and police departments.67 Some females commit violent crimes to prove themselves worthy of the gang. Despite the efforts females exert for their gangs, male gang members rarely give females the same status as men. Often, the role of females is addressed in a gangs manifesto, which suggests the gangs reverence for women. However, this reverence is rarely exhibited in the behavior of many male gang members, who view females as expendable and as weak links.68
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Gangs on the Internet

Gangs are using the Internet to communicate with each other, facilitate criminal activity, spread their message and culture, and recruit previously unreachable prospects around the nation.69 Gang web sites demonstrate a wide range of technical expertise. New software and hardware tools are being developed by the computer industry that will provide gangs and other criminal organizations with increased communications security so they can impede criminal investigations at all levels of law enforcement. It is only a matter of time before a more sophisticated form of criminal communications evolves using tools such as: Anonymous e-mail remailing Encryption software such as Pretty Good Privacy (PGP) Internet telephonyusing additional software and hardware (microphone, speakers, and sound card) to create a virtual Internet voice, data, and video telephone
High technology communications shield gang members from traditional law enforcement scrutiny. Gangs use the Internet to spread the gang culture.
Expect gangs to increase their use of the Internet in an attempt to circumvent traditional law enforcement practices. The Internet is a proven tool for drug trafficking70 and will continue to emerge as a communications tool for gangs to facilitate a variety of crimes.71 Given the current trend, gangs are likely to become so adept at using Internet technology that they may be shielded from traditional investigative intelligence collection methods. Some gangs communicate on the Internet instead of speaking on the telephone to circumvent traditional law enforcement intercepts. However, Internet communications are still vulnerable to law enforcement scrutiny through a search warrant on the computer itself or a Title III subpoena through the Internet service provider. Only a small percentage of law enforcement is using this resource, giving gangs a definite advantage in this arena. Expect gangs to increase their use of the Internet in an attempt to circumvent traditional law enforcement practices.
Most gang web sites are free services available to subscribers of America Online and other Internet service providers. They use simple graphics and provide e-mail capability, allowing gang members a low- or no-cost Internet presence. The more sophisticated gang homepages share a number of common elements: unique gang slang, gang member e-mail addresses, sound-off pages for gang member opinions, RIP sections dedicated to deceased gang members, and web site links to affiliated gang sets. A few gang homepages are even more elaborate. They may contain gang members photographs, biographies, and e-mail addresses, in addition to graffiti and audio messages and music. They may provide web links to associates, affiliated gangs, law enforcement, and corrections facilities. These homepages may also link to secure web pages that require passwords accessible only to gang members and links to gang members internet paging services with instant messaging, e-mail, audio, and text pages. The cost of establishing these web sites can be substantial.
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Gangs and the Media

The popularity of gang culture continues to grow at a rapid rate. This growth is fueled in part by the media through the music, movie, and television industries. There are no immediate signs of its diminishing as an expression of an alternative lifestyle by American youth. The basis for media portrayals of gang culture lies in the inner-city community and the dynamics of social interaction among minority youth. From situation comedies to motion pictures such as Menace II Society and Juice, depiction of the inner-city youth environment and the unique style of their social interactiontheir walk, talk, dress, and physical mannerismsare constant fodder for storylines which seem to revolve around elements of gang culture. Rap music has often been referred to as the rebellious voice of black youth. That reference is outdated. Rap, along with its parent hip-hop, became a global phenomenon during the 90s, transcending the inner-city minority community and appealing to all racial, ethnic, geographic, socioeconomic, and gender groups. As reported in a recent cover story for Time: In 1998, for the first time ever, rap outsold what previously had been Americas top selling format, country music. Rap sold more than 81 million CDs, tapes, and albums last year compared with 72 million for country. Rap sales increased a stunning 31% from 1997 to 1998, in contrast to 2% gains for country, 6% for rock, and 9% for the music industry overall.72 The crossover appeal of rap is, in many respects, grounded in the rise of gang culture and the gangsta style of rap music which promotes (the rappers say reflects) that lifestyle. It is a lifestyle rooted in the themes of money, women, guns, and drugs; the physical posturing in promoting those themes; and the language of the culture and its nonverbal forms of communication such as gang hand signs and graffiti. Through the music and movies this lifestyle inundates households, promoting the image of the gang member as a noble soldier fighting an oppressive system while reaping the material trappings of mainstream success. In essence, gang members become icons, heroes to be looked up to with admiration and respect for having the courage of their outlaw convictions while conquering a sociopolitical system that would keep them bound and gagged for offensive indiscretions. The vocal and visual image of the inner-city minority gang member embracing the thug way of life proves to be intoxicating and addictive to youth. Rap music has often been referred to as the rebellious voice of black youth. The importance of establishing superiority over gang rivals was evidenced by the East CoastWest Coast rap war which dominated the industry news between 1995 and 1997, though it began long before. Conflict over which coast reigned supreme in the rap industry spilled over into the gang world and affected communities across the country with violence and gunplay. This was most evident in the Las Vegas drive-by murder of Tupac Shakur (West Coast) and the similar Los Angeles murder of his East Coast rival, Notorious B.I.G. or Biggie Smalls. These incidents sparked a chain of events which affected cities as diverse as Los Angeles, New York City, Salt Lake City, and Omaha, to name a few. The music will continue to deliver a message of minority empowermentrebellion against a social system seen as unjust and unfeeling toward the concerns of the minority community. Guns and violence will continue to dominate the music and the gang culture. The desire for power, money, women, and respect will continue to be settled by the cult of the gun as portrayed in rap lyrics, music videos, and movies. The message being delivered to youth through rap music is changing for the better. The publics disgust with negative lyrics, intense scrutiny by politicians, and industry attempts to
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clean up its act in the face of such attacks have led to more socially conscious lyrics. There have been songs with just say no to gangs themes as well as some promoting sexual abstinence or safe sex practices, reflecting the increasing awareness of the AIDS epidemic. In addition, the denigration of women, a mainstay in the music since its inception, has in some cases turned to praise of women as the heart and soul of humanity, especially within the innercity minority community.
Law enforcement should never underestimate the power of this music and the entertainment industry to affect the general population of American society. The music and the culture that spawned it are thriving forces that have changed the face of social issues, politics, and the economy. It should not be taken lightly and dismissed as a fad that will simply go away with time.73
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Section III. Regional Gang Assessments

Northeast
The following individuals and members of their associations provided information for this regional assessment:
Detective Wes Daily, Jr. Suffolk County Police Department President, East Coast Gang Investigators Association Patrolman William Naholnik Waterford Police Department Executive Director, South Eastern Connecticut Gang Activities Group
General Trends Because of the relatively compact geographic area that comprises the New England states, gangs in this region operate their criminal enterprises between states rather easily. Increased law enforcement efforts in larger cities have brought about gang relocation to suburban areas and smaller jurisdictions where there is a less significant police presence. Gang members have become less overt in their actions to avoid detection by law enforcement. Major gangs such as Latin Kings, Los Solidos, Netas, and Tiny Rascal Gangsters are well organized and their formalized hierarchies are a strength that gives them increased influence in correctional facilities and on the streets. Some gangs, particularly the Latin Kings and Netas, claim the status of civic groups that promote ethnic pride and exist to help the community. Gangs from New York City have an influence on surrounding jurisdictions and states. Jamaican and Dominican gangs are prevalent in most of the urban areas of New York, New Jersey, and eastern Pennsylvania. Many gangs are recruiting heavily, especially in the middle schools. In New Jersey, Hispanic gangs appear to be increasing in number and are becoming more organized, while black gang activity appears to be more sporadic and less organized. In Pennsylvania, recent trends indicate that gang members are younger and tend to be more violent while older gang members are diversifying by starting legitimate businesses.
Migration The Northeast is experiencing the migration of Mexican gangs, Dominican gangs, Mara Salvatrucha, Chicago-based Disciples, and Los Angeles-based Crips into the region. There is an influx of Hispanic gang members into the New England states from the New York City area. The Latin Kings, the predominant gang in the region, is constantly shuttling members between New York City and surrounding states to further their criminal enterprises. Various Blood sets of the United Blood Nation have significantly increased in size and have moved their drug distribution operations from New York City into upstate New York and eastern Pennsylvania. Asian gang members are also migrating into the region from the West Coast and various Asian countries. Reports indicate that Skinheads are migrating from Ohio and Oregon into New Hampshire. Mara Salvatrucha continues to spread in the Northeast region. Its organizational skills are increasing and contact among Mara Salvatrucha members in northeastern states is on the rise. They have been tracked from Long Island to New Jersey, Pennsylvania, and upstate New York. Drug Trafficking Increasingly, gangs in the region are involved in some level of drug trafficking and derive the majority of their income from drug
19
sales. The tables below show the level of gang involvement in street-level drug sales and distribution in the Northeast. Percentage of Street Sales Conducted by Gang MembersNortheast
Powder Cocaine Crack Cocaine Marijuana Heroin Methamphetamine
Source: 1997 National Youth Gang Survey
18 27 31 15 4
Percentage of Gangs Involved in Street Sales and DistributionNortheast

Street Sales Distribution
50 34
Violent Crime Violence associated with drug dealing is a significant crime problem throughout the region. Law enforcement sources consistently report that violent criminal activity in their communities is directly related to gang presence and increases when drug trafficking is involved. Drug gangs are responsible for over 60 percent of the violent crime in New York City. Smaller communities throughout the Northeast report a growing problem of youth violence and weapons use associated with gangs. Over 50 percent of violent crime in Connecticut and Massachusetts is attributed to gangs. Most of these violent crimes are associated with gang-related drug trafficking. In New Jersey, the most disturbing trend is the violent behavior by gang members toward average citizens. Other Crime Many communities in the region reported that gang-related crime made up the majority of their crime problem. Gangs throughout the region are involved in a wide range of criminal activities in addition to their drug trafficking including burglaries, auto thefts, homicides, drive-by shootings, and weapons dealing. The table below shows the reported level of gang involvement in various criminal activities in the Northeast. Home invasion robberies of Asian business owners by Asian gang members are increasing, particularly in the New England states. According to law enforcement estimates, victims report these crimes in only 1 out of 10 cases. In New Brunswick, New Jersey, Hispanic gangs tend to prey on their own people. They collect window insurance from Hispanic business owners and commit street robberies of intoxicated victims.
Street-level drug dealing has increased in smaller communities and suburban areas as gangs migrate, seeking more profits and less law enforcement scrutiny. Many gang members have gone underground with their street-level dealing to avoid Federal prosecution under the Racketeer Influenced and Corrupt Organizations (RICO) statute. Mara Salvatrucha gang members in New Yorks Nassau and Suffolk Counties are attempting to control drug sales by intimidating and assaulting competing gangs. Cities in upstate New York are confronted with local drug dealers aligned with Jamaican and Dominican suppliers from New York City. Jamaicans control the majority of marijuana sales in the areas where they operate.
Degree of Gang Involvement in Criminal ActivityNortheast

Criminal Activity Aggravated Assault Robbery Burglary Auto Theft Larceny/Theft
Not Involved (%) 9 15 9 12 4
Low (%) 27 36 46 38 31
Medium (%) 37 39 37 30 43
High (%) 27 10 7 20 23
20
In some New York jurisdictions, members of the Latin Kings are using armed robberies as a means to raise money. Some gangs in the Northeast are becoming much more sophisticated. In Albany, New York,
Netas are involved in cellular telephone fraud. In Bridgeport, Connecticut, gangs are now getting into legitimate businesses and are involved in money laundering.
South
Detective Victor Bond Harris County Sheriffs Department President, Texas Gang Investigators Association Sgt. Randy Crank Norfolk Police Department President, Virginia Gang Investigators Association Sgt. Paul Eskine Jefferson Parish Sheriffs Office Member, Louisiana Gang Investigators Association Sgt. Jerry Flowers Oklahoma City Police Department President, Oklahoma Gang Investigators Association Corrections Program Administrator Cory Godwin Florida Department of Corrections President, Florida Gang Investigators Association Mr. Donald Lyddane Federal Bureau of Investigation Chairman, Mid-Atlantic Regional Gang Investigators Network
General Trends Gang culture in the South is generally influenced by Folk and People Nation gangs from Chicago and to a lesser extent by Bloods and Crips from California. However, the majority of gangs in Texas are Hispanic neighborhood gangs. Gang activity in Maryland, Delaware, and northern Virginia is heavily influenced by gang members from Baltimore, Philadelphia, Washington, D.C., and New York City. The neighborhood gangs throughout the South for the most part are unstructured and unorganized. Many of these gangs are attempting to become more organized, looking to the Chicago-based gangs for support in operating their drug activities. Hispanic gang activity is increasing throughout the region, influenced by migrants from Illinois,
Texas, Mexico, and Central America. Asian gang activity is increasing in Texas, Louisiana, North Carolina, and Georgia. Skinheads and other white supremacist groups are common throughout the region. Hybrid gangs that combine Folk and People Nation affiliations with Bloods and Crips influence are common. Gangs across the region are becoming more racially mixed, particularly in smaller jurisdictions. As gangs have matured, gang members have become more covert in their actions in order to evade recognition by law enforcement. Increased law enforcement efforts in larger cities have brought about gang movement to suburban areas and smaller jurisdictions where there is a less significant police presence. Gang members are being recruited at younger ages, and are more
21
heavily armed and violent. Gang-related drug trafficking throughout the South has also created an increase in gang migration to smaller cities and communities. Migration Gangs such as the Latin Kings and Black Gangster Disciples from Chicago have the largest impact on gang activity across the South. Additional sources of gang migration into the region include California, New York, Massachusetts, Mexico, and El Salvador. Gangs in the South are expanding from larger cities to smaller jurisdictions, which offer new drug markets and a reduced law enforcement presence and awareness. Asian gangs are beginning to migrate across the South at a growing rate. Law enforcement officials are reporting increases in Asian gang members and activity. The availability of jobs throughout the region, particularly in Asian-based automobile factories, is one factor in the Asian population increase. Asian gangs are reportedly very mobile and are heavily involved in a multitude of criminal activities. In Texas, the majority of gangs in El Paso, San Antonio, and Houston are Hispanic neighborhood gangs. Some of these gangs have connections to Mexico that involve families, drug sources, and safe areas. Bloods and Crips from Los Angeles as well as Chicago-based gangs are also a strong influence within Texas. In Washington, D.C., Delaware, Maryland, Virginia, and West Virginia, the black neighborhood gangs that are highly focused on drug trafficking are the most influential. Mara Salvatrucha gang members from El Salvador, Texas, and California are also found in relatively large numbers in the suburban counties surrounding Washington, D.C. The movement of gangs and gang culture is also occurring through the transfer of military personnel and dependents with gang connections. Many of the Asian and Hispanic gangs first surfaced in South Carolina because of military transfers. In North Carolina, some active duty military personnel have been identified as
22
gang members with involvement in assaults and weapons offenses. It is suspected that some national-level gangs such as the Black Gangster Disciples are encouraging members to join the military to learn military tactics and to gain access to weapons and ammunition. Drug Trafficking Gangs throughout the South, with the exception of Asian gangs, are generally involved in drug trafficking at some level and derive the majority of their income from drug sales. The tables below show the level of gang involvement in street-level drug sales and distribution in the South. Percentage of Street Sales Conducted by Gang MembersSouth
14 34 32 5 7
Percentage of Gangs Involved in Street Sales and DistributionSouth

38 30
Most of the gangs in the South are loosely structured and unorganized, with changing leadership. However, as they are exposed to the highly structured Chicago-based gangs, some are attempting to become better organized to make their drug businesses more profitable. It is reported that Hispanic gang members from Chicago are increasingly residing in Texas to oversee the transportation of drugs for distribution in Chicago. Organized gangs from the Midwest such as the Black Gangster Disciples are sending members to smaller cities throughout the South to recruit local members and set up drug markets. In Houston and San Antonio, Texas, paint and glue sniffing is the predominant type of drug
abuse among Hispanic gang members because of the relatively high cost of drugs such as cocaine and heroin. The Barrio Aztecas and Mexikanemi control the heroin and Rohypnol trade in El Paso. Rohypnol and other illegal prescription drugs are increasingly being transported across the border from Mexico into Texas. These prescription drugs are readily available in Mexico and are becoming more popular to traffic because there is no need for a production laboratory and they are relatively low-cost. Additionally, law enforcement officials in El Paso are seeing a new generation of heroin users among gang members. Violent Crime While some jurisdictions report a decrease in violent crime, the region in general is experiencing an increase in gang-related violence. Most jurisdictions report that a very high percentage of violent crime is tied to gang-related drug trafficking. Gang violence is generally decreasing in urban areas and continuing to rise in rural areas. Increases in gangrelated violent crime are particularly noted in areas where gangs are migrating and growing such as Polk County, Florida; Gainesville, Georgia; and Charlotte, North Carolina. Asian gangs throughout the region are extremely violent. Georgia, North Carolina, Texas, Louisiana, and Arkansas report that Asian gangs are a significant problem for law enforcement. Home invasions and business extortion by Asian gang members have increased and are difficult to investigate for a number of reasons: Asian victims are reluctant to report the crime because they lack respect for the police.
Asian victims and witnesses are afraid to testify because of gang reprisal. The Asian community views cooperation with law enforcement as disloyalty.
Assaults on law enforcement personnel by gang members are a major concern in the region, particularly in Texas, Oklahoma, Florida, and Washington, D.C. Other Crime Gangs throughout the South are committing a variety of crimes in addition to drug trafficking, including robberies, auto thefts, carjackings, weapons distribution, burglaries, and property crimes. Many communities in the region report that gang-related crime accounts for the majority of the crime problem. The table below shows the reported level of gang involvement in various criminal activities in the South. Below are some examples of gang involvement in other criminal activities as reported in the NDIC National Street Gang Survey Report1998. Macon, Georgia, reports that gang members are responsible for 75 percent of the crime and that gang-related auto thefts are a priority for law enforcement. Recently, members of the P Stone Crips from Los Angeles traveled to Louisiana for the sole purpose of robbing a bank. Four gang members were arrested in connection with the incident. Black Gangster Disciples in western Tennessee are exhibiting organization, sophistication, and political savvy. They have computerized their records and use the Internet to transmit and disseminate their information. They raise money
Degree of Gang Involvement in Criminal ActivitySouth

Not Involved (%) 3 11 3 6 3
Low (%) 30 44 23 32 24
Medium (%) 39 31 40 33 44
High (%) 27 14 35 30 30
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through the collection of dues, drug sales, and robberies. Black Gangster Disciples throughout the South continue to operate under the
banner of Growth and Development to aid in recruitment and to appear legitimate to community leaders.
Midwest
Lieutenant Joe Mollner St. Paul Police Department President of the Minnesota Chapter and Executive Board Vice-Chairman, Midwest Gang Investigators Association Investigator Robert J. Simandl Chicago Police Department President of the Illinois Chapter and former Executive Board Chairman, Midwest Gang Investigators Association Captain Don Vrotsos Dubuque County Sheriffs Office President of the Iowa Chapter and Executive Board Chairman, Midwest Gang Investigators Association
General Trends The primary influence on gangs throughout the Midwest comes from gangs in Chicago, Illinois; St. Louis and Kansas City, Missouri; Minneapolis, Minnesota; and Los Angeles, California. Gangrelated drug trafficking throughout the Midwest has created an increase in gang migration to smaller cities and communities, in overall gang violence and crime, in Hispanic and Asian gang membership, and in the increasing sophistication of major gangs. Midwest gangs are responding to greater law enforcement pressure and scrutiny by going underground. As they increase their involvement in drug trafficking, gang members are also becoming more organized and sophisticated to sell more drugs and gain greater profits. Colors, hand signs, and graffiti are not nearly as prevalent as before. Gang members in smaller Midwest communities who proudly admitted gang involvement in the past are now denying that they are gang members. In Fargo, North Dakota, the Mickey Cobras held a meeting and decided to maintain a lower profile in order to sell more drugs. In Indiana, the passage of a criminal gang statute caused many gangs to go underground.
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Gangs may use their numbers and neighborhood influence in an attempt to affect local politics. Some gangs have created political action organizations to launder drug money. Rules governing the reporting of monetary contributions to these organizations make them prime vehicles for concealing money derived from criminal activities. While Chicago gangs are composed predominantly of members of a single race or ethnic group, suburban gangs are becoming more racially diverse in their makeup, such as those found in DuPage County, Illinois. Iowa, Nebraska, Missouri, and Minnesota are experiencing increases in white supremacist groups. Hispanic and Asian populations, drawn to employment in meatpacking or poultry processing plants, are also increasing. There is a likely correlation between the rise of white supremacist groups in these areas and the rise in ethnic populations. Migration Gangs from the following areas influence the Midwest: Chicago, Illinois; St. Louis and Kansas City, Missouri; Minneapolis, Minnesota; and Los Angeles, California. The major Midwest gang
migration is from larger cities such as Chicago to smaller cities and communities such as Bloomington, Indiana. This migration is due in part to law enforcement pressure in larger cities and more lucrative drug profits in smaller jurisdictions. Currently local law enforcement officials do not have the resources to combat gangs effectively in smaller towns where gangs are emerging, which creates a more favorable environment for gang-related crime. California-based Norteos 14 and Sureos 13 are now being identified in suburban Chicago and are involved in conflicts stemming from their rivalry in California. There have been some alliances between California-based gangs and Chicago-based gangs. The Midwest is experiencing a rise in Asian gangs. They, like Hispanic gangs, are drawn to the region because of employment opportunities in the large meatpacking plants located in Kansas, Missouri, and Iowa. The Asian population in these states is growing, thereby increasing the Asian gang problem. Asian gangs are beginning to spread to Minnesota, Wisconsin, and Ohio. Drug Trafficking Gang involvement in the drug trade is increasing, which is causing an increase in gangrelated violence in the Midwest. In Gary, Indiana, gangs control over 75 percent of the drug houses. The large number of drug houses (300) accounts for much of the citys violent crime. Fitchburg, Wisconsin, has experienced an increase in overall crime, especially drug trafficking. Officials in Green Bay, Wisconsin, state that the majority of their violent crime stems from gangs and drug trafficking. The tables below show the level of Percentage of Street Sales Conducted by Gang MembersMidwest
gang involvement in street-level drug sales and distribution in the Midwest. All midwestern states except North Dakota are experiencing an increase in methamphetamine sales, some of which is attributed to Hispanic gangs, according to respondents to the NDIC National Street Gang Survey Report 1998. Several of these states contain meatpacking plants that employ many Hispanics. The communities surrounding these plants are attractive not only to the majority of Hispanics who are searching for a legitimate source of income, but also to those in gangs. In South Dakota the focus of Hispanic gang criminal activity is the transportation and distribution of methamphetamine. Iowa officials report that the primary gang-related criminal activity is methamphetamine trafficking. In the Chicago suburbs, Hispanic gangs such as the Latin Kings, Satan Disciples, and Sureos 13 are now dealing drugs at levels equal to those of black gangs. Violent Crime Overall, the Midwest is experiencing a rise in gang-related violence, which can be attributed in part to the rise in gang-related drug trafficking throughout this region. Law enforcement reports from the Midwest indicate that gangs are involved in assaults on law enforcement, homicides, drive-by shootings, carjackings, home invasion robberies, and weapons trafficking. Seizures of guns from gang members in Chicago and the surrounding suburbs have increased markedly. Many of these guns are either stolen or obtained through straw purchases. Home invasion robberies, many of which are drug-related, are increasing throughout the Percentage of Gangs Involved in Street Sales and DistributionMidwest
19 38 35 8 10
45 35
25
Midwest. Higher rates of home invasions are a probable predictor of an increase in gang-related drug trafficking in a community. Other Crime The table below shows the reported level of gang involvement in various criminal activities in the Midwest. Gangs throughout the Midwest are becoming much more sophisticated in their illegal activities. Gangs are starting businesses to launder narcotics proceeds, a trend that will continue as their drug activities increase. They are seeking
legitimization and employment in positions useful to their operations. The Black Gangster Disciples are opening businesses for the sole purpose of laundering drug money. Some gangs in Iowa are finding ways to legitimize their activity by seeking grants and loans to fund their illegal endeavors. In Nebraska, gang members and female associates are obtaining employment in airport security, at telephone companies, and with pager services to assist in the gangs illegal activities.
Degree of Gang Involvement in Criminal ActivityMidwest

Low (%) 39 46 37 37 27
Medium (%) 38 24 39 33 43
High (%) 21 10 20 21 27
West
Sgt. Wes McBride Los Angeles County Sheriffs Department President, California Gang Investigators Association Sgt. Larry Rael Sacramento County Sheriffs Department President, Northern California Gang Investigators Association Deputy Brent Royle Washoe County Sheriffs Department President, Nevada Gang Investigators Association Sgt. Michael Yates Spokane Police Department President, Northwest Gang Investigators Association
General Trends Gangs from California, particularly the Los Angeles area, have a major influence on surrounding jurisdictions and states. A major conduit for
26
gang movement from the Los Angeles area is Interstate 5. The I5 corridor runs from San Diego, California, to Vancouver, British Columbia, and facilitates gang activity and movement from the
larger urban areas along the corridor into adjacent jurisdictions and states within the region. Hispanic gangs in the region have separated into two rival factions, the Norteos and the Sureos. The Norteos are primarily found north of Bakersfield, California, and the Sureos are found to the south, predominantly in the urban areas surrounding Los Angeles. The rivalry between the Norteos and the Sureos had its genesis in the California Department of Corrections during the 1960s when the Nuestra Familia prison gang was formed to oppose the intimidation of the Mexican Mafia. The Mexican Mafia remains powerful both in prison and on the street. Most Hispanic gangs align themselves under the Norteos or the Sureos. There is also a separate and distinct faction of Hispanic gang members from the Fresno, California, area that call themselves Bulldogs or Bulldog Nation. They do not claim alliance with the Norteos or the Sureos. Although Nevada is north of Bakersfield in Norteos territory, the majority of Hispanic gang members within the state claim affiliation with the Sureos. Hispanic gang members in surrounding states generally claim Norteos affiliation, resulting in incidents of gang rivalry. Hispanics account for 65 percent of all the gang members in northern Nevada. While all ethnic groups have shown increases in gang membership, Native American gang membership has increased over 27 percent over the past 2 years.74 The Los Angeles-based Bloods and Crips are major influences, not only in the region, but also throughout most of the country except New England. These black gangs are not well organized, but have entrepreneurial members who migrate to other jurisdictions to obtain higher drug profits or conduct other criminal activities. With the exception of California, all the contiguous states in the region are experiencing a growing influence of Chicago-based Folk Nation gangs that could rival the influence of Bloods and Crips from Los Angeles. Asian gangs, found mostly along the Pacific Coast, are increasing in size and criminal activity.
They are extremely violent, highly mobile, and tend to prey on other Asians. Skinheads and other white supremacist groups are active throughout the region particularly in the Pacific Coast states, Nevada, Montana, Wyoming, and Colorado. Gang members are being recruited at younger ages, are more heavily armed and violent, and are concealing their gang affiliations to avoid detection by law enforcement. Arizona and Nevada authorities report that Native American gangs are increasing at an alarming rate. Migration The migration of Hispanic, black, and Asian gang members from southern California across the nation can be attributed to several factors. Families often relocate to escape a gang problem in their neighborhood or to remove a family member involved in gangs. The movement of families for job relocation, often related to military transfers, also contributes to gang migration. Dependent children involved in gangs usually continue their gang association when they move. The expansion of the drug trade and other criminal activities into new, more profitable markets is a major factor in gang movement. The migration of gangs and their members from southern California throughout the nation will continue as law enforcement pressures persist at home, and more profitable drug markets are available elsewhere. California-based gang members operating out of Spokane, Washington, have been arrested in Detroit, Michigan, and Louisville, Kentucky, demonstrating their mobility.75 Gang members from the Northwest are migrating eastward along Interstate 90 into communities in the Midwest and the South to avoid prosecution in the Northwest and to seek new drug markets. Most gang migration within the region seems to follow the interstate highway system. Hispanic gang members from southern California and Mexico are migrating to northern California and surrounding states, resulting in tension and
27
violence associated with the Norteos and Sureos. Bloods and Crips gangs from Los Angeles are found in almost every large jurisdiction within the region. As they get farther from home, these typically black gangs tend to become more racially mixed. Asian gangs are very mobile, easily moving up and down the Pacific Coast to commit crimes. The immigration of Asian gang members from Southeast Asia has been noted along the entire Pacific Coast. The Pacific Northwest is continuing to experience an increased influx of gang members from other cities throughout the United States. Folk Nation members from Chicago are moving into the Rocky Mountain States and the Pacific Northwest. These gangs are increasing their level of criminal activity, surpassing the Bloods and Crips in some jurisdictions. The structured nature of Folk Nation gangs such as the Black Gangster Disciples may influence the future makeup of Bloods and Crips gangs in areas outside Los Angeles. Law enforcement could be faced with a formidable problem if Folk Nation gangs were to influence the organization of the Bloods and Crips gangs in southern California. Drug Trafficking Gang members from southern California play a significant role in drug trafficking across the United States. Drug trafficking organizations bring large quantities of cocaine and marijuana into the country through states along the Mexican border. Gangs in cities such as Los Angeles and Phoenix distribute these drugs across the region and the entire country. While most drugs come into the United States from the south, there are reports that gangs in western Washington are trading cocaine for marijuana across the U.S. Canada border. Hispanic gang members are becoming more involved in methamphetamine sales. In Sacramento, California, Hispanic gang members have taken over the majority of methamphetamine sales and production that were once the mainstay of OMGs. Phoenix, Arizona, is experiencing an increase in gang involvement in local narcotics
28
sales, particularly methamphetamine. Hispanic gang members are being arrested for methamphetamine more frequently than for crack cocaine. Law enforcement is discovering methamphetamine laboratories in rented trucks, motels, and houses. Drug trafficking by gangs is increasing throughout the region, particularly in the Pacific Northwest and the Rocky Mountain States, where the profit derived from drug trafficking is the primary source of income for most established gangs. (Newly formed gangs, especially in rural areas, are often turf-oriented and have often not begun to deal drugs.) The tables below show the level of gang involvement in street-level drug sales and distribution in the region. Percentage of Street Sales Conducted by Gang MembersWest
14 26 29 12 21
Percentage of Gangs Involved in Street Sales and DistributionWest

30 21
Street gangs that were once rivals are now collaborating to traffic drugs. Outside the Los Angeles area, the Bloods and Crips have sometimes joined forces to sell crack cocaine, putting aside their normal rivalry in pursuit of money. This trend is most noticeable in older gang members. Violent Crime Most gang violence throughout the region is related to rivalries between factions such as the Norteo-Sureo or Bloods-Crips. Most of the region reports that the majority of violent crime is gang-related and that it involves gang-related drug trafficking outside southern California.
Gang violence is generally decreasing in urban areas and rising in rural areas. Many jurisdictions report fewer but more serious violent acts by gang members. Gangs are more violent and better armed than they were a few years ago. Despite the decrease in urban violence, gangs continue to be a major source of violent crime. The main concern in the Los Angeles area is the frequency of violence against law enforcement caused by the enactment of the Three Strikes Law. Attacks on law enforcement will likely increase as gang members attempt to protect themselves from apprehension for their third offense. Other Crime In addition to violent crime and drug trafficking, gangs are involved in bank robberies, kidnappings for ransom, narcotics rip-offs, and other high-profit crimes. The table below shows the reported level of gang involvement in various criminal activities in the West.
Listed below are some reports of other gangrelated crime within the region: Automobile theft by Hispanic gang members is extremely high in cities such as Los Angeles and Phoenix. In 1998, Phoenix had the second highest rate of automobile thefts in the United States. The majority of these stolen vehicles were taken across the border into Mexico. Gang members have reportedly been dressing like police officers in Arizona to commit home invasions and drug rip-offs. Russian, Yugoslavian, and Croatian gangs are becoming a major problem in the Sacramento, California, area. They are involved in automobile thefts and chop shops. Asian gang crime throughout the region is at an all-time high and includes home invasion robberies, burglaries, and auto thefts. Reports of witness intimidation by gang members throughout the region are becoming more prevalent.
Degree of Gang Involvement in Criminal ActivityWest

Low (%) 25 49 30 29 24
Medium (%) 37 29 40 33 47
High (%) 37 15 28 35 28
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Section IV. Antigang Initiatives

The gang problem has grown exponentially and now affects society at many different levels. Federal, State, and local criminal justice professionals, Government officials, and other community leaders must develop complementary strategies that employ suppression, intervention, and prevention elements to combat this threat. Gangs are a local problem with national implications. Local officials must have the resources and flexibility to set policies and implement programs that address their particular situations. Many of the methodologies outlined below have been adapted to fit the needs of individual jurisdictions. These strategies are not intended to be a comprehensive list of all antigang programs.
Suppression
Federal The Federal Government has the jurisdiction and the resources to attack violent criminal gangs that operate nationally and internationally. Federal resources, which may not be available to State and local law enforcement, include technological tools such as surveillance equipment and statutory tools such as pretrial detention and mandatory minimum sentencing.76 Several Federal agencies are cooperating with State and local law enforcement through task forces to combat gangs and address the unique gang problems in a community. The agencies involved and the programs they sponsor are listed below. Bureau of Alcohol, Tobacco and Firearms The ATF has primary jurisdiction in enforcing the Federal firearms, explosives, and arson statutes. Because many gangs illegally possess, use, or traffic guns, ATF plays a significant role in implementing strategies designed to address gang violence. ATF has several programs aimed at combating gang violence. Youth Crime Gun Interdiction Initiative. The YCGII is an ATF pilot program designed to identify and interrupt the illegal supply of firearms to young people through enforcement and research efforts. Primarily, the YCGII seeks to discover and assess how the illegal firearm market affects young people, who are most susceptible to gang influence, and then determine methods and resources necessary to reduce the problem. Using the ATF National Tracing Center and Project LEADATFs information system on illegal firearms traffickingthe YCGII provides the law enforcement partnerships with investigative leads to develop cases against criminals who are involved in the illegal transfer and sale of firearms to juveniles. Violent Crime Coordinator. In 1997, ATF established the position of VCC in each of its firearms field offices. The VCC is an experienced special agent who is responsible for the prevention, detection, and investigation of violent crime and violent criminal organizations. The VCC establishes effective liaison and working relationships with State, local, and other Federal law enforcement agencies within that field offices area of jurisdiction. Project Exile. ATF, in conjunction with U.S. Attorneys Offices, is pursuing a primary strategy to reduce violent crime and deny criminals access to firearms. Project Exile began in Richmond, Virginia, in March 1997 when ATF, in cooperation with the U.S. Attorneys Office and the Richmond Police Department, developed Project Exile to break the cycle of violence. Project Exile has a simple premise: anyone caught illegally possessing a gun will go to Federal prison for the minimum mandatory sentence of 5 years. Using existing Federal laws, Project Exile prosecutes all felons
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who possess guns, criminals who use guns to traffic in drugs, and those who use guns to commit domestic violence. National Integrated Ballistic Information Network. ATFs NIBIN program blends advanced forensic technology with various ATF projects, programs, and personnel, creating a network of forensic ballistic imaging and analysis elements capable of identifying and matching evidence from one or more crime scenes. Overall, ATFs NIBIN program seeks to identify those criminals who repeatedly use the same firearm in multiple violent crimes. Crime Gun Center. In an effort to stem the flow of illegal firearms trafficked into New York and New Jersey, ATF has established a regional Crime Gun Center. The New York/ New Jersey High Intensity Drug Trafficking Area (HIDTA) Office is an essential partner in the Regional Crime Gun Center.77
Drug Enforcement Administration DEA is the Federal agency primarily responsible for enforcing Federal narcotics laws; it routinely deals with drug trafficking from both supply and demand perspectives. Mobile Enforcement Teams. DEA has created Mobile Enforcement Teams that support State and local agencies by targeting violent organizations involved in drug trafficking. El Paso Information Center. EPIC collects and analyzes intelligence information on narcotics traffickers. Laboratories. DEA provides important forensic support to investigators through its laboratories, located throughout the United States.79
Bureau of Justice Assistance Regional Information Sharing Systems. The RISS program is a major effort supporting State and local law enforcement and prosecution efforts to deal with gang-related criminal activity. RISS grants support projects to collect and coordinate gang investigation information using a nationwide gang database.78 Additional information on the RISS projects can be found at <www.iir.com/riss>. Six RISS projects serve law enforcement agencies across the United States. Middle AtlanticGreat Lakes Organized Crime Law Enforcement Network (MAGLOCLEN) Mid-States Organized Crime Information Center (MOCIC) New England State Police Information Network (NESPIN) Regional Organized Crime Information Center (ROCIC) Rocky Mountain Information Center (RMIN) Western States Information Network (WSIN)
Federal Bureau of Investigation National Violent Crime Strategy, National Strategy for Organized Crime and Drug Enterprises, and National Gang Strategy. These FBI-developed strategies serve as frameworks for combating violence in America. Each incorporates the task force concept with a comprehensive focus on investigation and prosecution. Safe Streets Violent Crimes Initiative. The Safe Streets program has grown to encompass 166 task forces in 53 FBI field offices across the country and has been implemented in Indian Country as Operation Safe Trails. The Special Agent in Charge of each FBI field division may address gang- and drug-related violence by establishing a long-term, proactive task force. These task forces team FBI special agents with other Federal agents as well as State and local police officers. The Safe Streets initiative emphasizes the need for a highly reliable intelligence base as the springboard for multiagency task force action against violent gangs. By applying the same methods used in the successful war on traditional organized crime, Safe Streets task forces are developing racketeering and continuing criminal enterprise cases to remove the leadership and the most dangerous members of violent street gangs and to seize their assets.80
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Federal Bureau of Prisons Many gang leaders have been, are, or will be in BOP custody, where they often continue their criminal activities. The BOP plays an active role in providing significant information and intelligence on violent gangs for use by law enforcement task force operations in the community. Sacramento Intelligence Unit. The BOP hosts the SIU, which is jointly staffed by the BOP, Marshals Service, and Probation and Parole. The SIU provides operational intelligence support to corrections and law enforcement agencies. National Major Gangs Task Force. The BOP has played a major leadership role in facilitating the formation of this consortium of gang experts from State correctional systems and major metropolitan jails.81
Gang Task Forces disrupt and dismantle criminal alien gangs through the identification and prosecution of their members and associates. Deportation. After prosecution and conviction, INS can deport alien gang members from the United States. If gang members return to the United States, they may be criminally charged and face additional penalties.83
National Drug Intelligence Center NDIC is an independent component of the Department of Justice. Its mission is to produce strategic intelligence for the counterdrug community focusing on drugs, gangs, and violence. The NDIC web site is <www.usdoj.gov/ndic>. Gang Program. The Gang Program examines gangs and gang-related activity on a national level. National Gang Surveys. Since 1994, NDIC has conducted surveys to determine the scope and criminal activities of gangs in the United States. The results are published every 2 years and are disseminated to Federal, State, and local agencies. Intelligence Reports. Based on the identification of specific threats and trends, NDIC produces intelligence reports such as predictive strategic estimates, organizational assessments, and baseline studies.
HUD Office of the Inspector General Housing and Urban Developments Office of the Inspector General has become a partner in approximately 100 task forces. It provides intelligence on violent gang activity in public housing and furnishes layouts of buildings and complexes, plans, and physical descriptions valuable to gang suppression efforts. Operation Safe Homes. HUD OIG has taken an active role in efforts to reduce violent crime in publicly funded housing through its Operation Safe Homes. Public housing complexes often serve as both operational turf and home to many gang members. Witness Relocation Program. Developed by HUD OIG, the program relocates residents of public housing who assist law enforcement efforts and identify perpetrators of violence.82
U.S. Marshals Service The USMS has primary responsibility for apprehending and arresting Federal fugitives. The USMS is an important component of task forces formed by State and local authorities to apprehend violent fugitives. Warrant Information Network. The USMS Warrant Information Network plays an important intelligence role by monitoring and tracking all fugitives sought. Threat Analysis Division. This USMS Division tracks intelligence data on criminal gang members and their activities.84
Immigration and Naturalization Service The INS is the Federal agency charged with administering the criminal and civil immigration laws of the United States. Violent Gang Task Forces. INS formed Violent Gang Task Forces, which operate in concert with other Federal, State, and local law enforcement agencies and task forces. Violent
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State and Local State and local law enforcement officers are more likely than their Federal counterparts to have street-level experience and intelligence on gangs, which is often essential to successful investigation and prosecution.85 California Operation Cul de Sac. Launched by the Los Angeles Police Department in 1990, OCDS erected traffic barriers in hot spots where gang crime had spiraled out of control. Police closed all major roads leading to and from a 10-block area by placing freeway dividers at the end of the streets that led directly to them, creating cul-desacs. OCDS was introduced to decrease the mobility of rival gangs traveling to and from gang crime hot spots, and to discourage hit-and-run crimes such as drive-by shootings.86 Indiana Department of Correction. The Indiana Department of Correction reports that it is identifying, monitoring, suppressing, and practicing zero tolerance of gangs. It is active in all Indiana gang task forces, works closely with law enforcement, and assists in public and private sector awareness training.87 Iowa Dubuque Task Force. Officials in Dubuque, Iowa, created a local task force composed of members from the police and sheriff's departments, adult and juvenile probation and parole offices, and local prosecutors and correctional facility personnel. This group meets monthly to share intelligence information about suspected gang members. As a result of this interaction, in April 1998 three juveniles were chargedas adultswith violations of the State Criminal Street Gang Participation statute. Adult probation and parole officers use the information gathered by task force members to revoke probation on suspected gang members. Although only a few gang-related incidents were reported, they were proactively investigated.88
Maryland Baltimore Youth Violence Strike Force. The Baltimore Police Departments Violent Crimes Division and Youth Violence Strike Force target violent gang members 24 and younger. Analysis of internal police data on shootings revealed that more than half of the victims and suspects were in this age group. The Youth Violence Strike Force, a team of police, parole, and probation officers working closely with Federal, State, and other local agencies, aggressively seeks to apprehend and incarcerate violent gang members. They targeted gangs in two hot spot areas, which produced a marked decrease in handgun-related violence and buttressed Handgun Recovery Squad efforts, as evidenced by internal data collection.89 Massachusetts Boston Gun Project. Established to reduce serious youth violence, this is a gun suppression and interdiction program. Local police, in cooperation with ATF and using the ATF National Tracing Center, discovered sources of illegal weapons and gun trafficking patterns. Swift Federal prosecution for gun trafficking took some traffickers off the streets and resulted in the investigation and prosecution of several interstate gun trafficking rings. These actions were thought to have a deterrent effect because Federal crimes carry longer sentences than most State gun crimes, and gang members fear being in a Federal correctional facility.90 Operation Ceasefire. Federal, State, and local law enforcement work together on a citywide strategy in Boston to deter youth firearm violence. The message is emphatic: The violence must stop or the full weight of law enforcement and the criminal justice system will be brought to bear on the perpetrators.91
Minnesota State Gang Strike Force. Minnesota created this force to enable law enforcement to collaborate more effectively across jurisdictions.92 The Task Force is composed of 45 members from local, county, and State police
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agencies, as well as a probation officer and a State prosecutor. Members are deputized, have power statewide, and conduct long-term investigations using a gang database. The State Gang Task Force grew out of Minneapolis Hope, Education, and Law and Safety (HEALS) a publicprivate partnership initiated by Honeywell, Inc. The gang task force now has more than 60 members representing several corporations as well as State and local law enforcement agencies and a variety of other community representatives. Decreases in gang-related serious and violent crimes have been attributed to the Minneapolis HEALS partnership. Minneapolis Anti-Violence Initiative. Gang suppression activities are concentrated in this initiative, which employs teams of police and probation officers and targets multiple offender gang members who possess weapons. Suppression strategies include saturation patrols, rapid response teams to prevent retaliation, gun tracing, Federal gun prosecutions, and vertical prosecutions.93
operation is coordinated across several law enforcement agencies. It consists of three strategies: a crackdown on illicit gun trafficking through the ATF gun-tracing program; a swift response to acts of gang violence through intensive surveillance, youth outreach streetworkers, and social service interventions; and Operation Night Light. St. Louis Operation Night Light. Modeled after Bostons program, Operation Night Light teams police with probation officers in visits to the homes of youth on probation to ensure compliance with the terms of their probation. St. Louis Gang Outreach. The St. Louis Police Department launched one Cease Fire component, the Gang Outreach program, in 1998. When a gang-involved youth is shot, counseling professionals discourage victims from retaliating and encourage them to leave gangs. While the counselor is working with the victim, police make contact with the parent and, using the Consent to Search and Seize protocols, obtain permission to search the youths home for weapons and other contraband.94
Missouri St. Louis Firearm Suppression Program. Officials developed effective Consent to Search and Seize protocols in conjunction with the FSP that began in 1994. The search of a home can be initiated by citizen request for police service, reports from other police units, or information gained from other investigations. Once the unit receives a report, two officers visit the residence in question, speak with an adult resident, and request permission to search the home for illegal weapons. Officers inform residents that they will not be charged with the illegal possession of a firearm if they sign the Consent to Search and Seize form. St. Louis Cease Fire Operation. In 1997, the Firearm Suppression Program was incorporated into a broader law enforcement initiative, called Cease Fire (modeled after Bostons Operation Ceasefire). The St. Louis Cease Fire
Oklahoma In Oklahoma City, the police department has developed a gang unit composed of three teams. One is a gang suppression team, the second is a drive-by shooting team, and the third is a gang intelligence team. The no tolerance approach reduced drive-by shootings more than 50 percent. Additionally, the district attorneys office focuses on gang prosecution and putting gang members in prison.95 Oregon In Portland, Oregon, the Youth, Gun, AntiViolence Task Force is seizing firearms, monitoring gun shows, and targeting violent criminal offenders. The Y-GAT unit is composed of representatives from the Portland Police Department Gang Unit, Oregon State Police, various county sheriff s departments, school police, and ATF agents.96
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Texas During 1996 and 1997, the Dallas Police Department operated an Office of Community Oriented Policing Services gang-related program that had promising results. The COPS antigang initiative targeted five geographic areas that were home to seven of the citys most violent gangs. Three
main suppression strategies were employed: saturation patrol, aggressive curfew enforcement, and vigorous truancy enforcement in conjunction with school districts. Gang Unit officers teamed with Interactive Community Policing officers to carry out selected strategies in each of the five geographic areas.97
Intervention and Prevention

It has long been understood that prevention is the most cost-effective approach to dealing with gang involvement and its inherent crime. Similarly, intervention before an individual becomes a hardened and committed gang member improves the chance of preventing further violence and victimization involving that individual. Current preventive responses to gang involvement generally are effective. This is an improvement over previous programs that did not focus on identified risk factors for gang involvement.98 Todays knowledge of gangs and the reasons youth become involved in gangs has been greatly enhanced through research and evaluation. Gang prevention and intervention strategies are better designed and hold more promise than ever before. Counseling, treatment, recreation, academic assistance, job placement and training, street outreach, and monitoring and surveillance are being integrated into prevention strategies designed to reach youth most at risk for gang involvement. Many of these ingredients, along with the close involvement and support of the juvenile and criminal justice systems, are being used to intervene with youth who want to get out of gangs or who are not yet fully committed to gang membership.99 No single approach or strategy can be completely effective; rather a combination of strategies focused on the population most in need holds more promise if implemented properly. For any gang suppression, intervention, or prevention program to be well designed, a complete and thorough assessment of the communitys gang problem must be undertaken. This includes not only a review of intelligence information, but also crime analysis and a full review of risk factors and resources within the community. Law enforcement agencies must also reach out to community groups when considering or developing prevention and intervention strategies.100 Federal The Office of Justice Programs Office of Juvenile Justice and Delinquency Prevention produced the Youth Gang Consortium Survey of Gang Programs. This document outlines the following gang and gang-related initiatives undertaken by the Federal Government.101 Bureau of Alcohol, Tobacco and Firearms Gang Resistance Education and Training. The G.R.E.A.T. program is managed by a partnership consisting of the Federal Law Enforcement Training Center, the Phoenix Police Department, the Orange County, Florida, Sheriff s Department, and the ATF. The G.R.E.A.T. program developed classroom curricula to help elementary and middle school children set goals for themselves, resist pressures, learn how to resolve conflicts without violence, and understand how gangs and youth violence impact the quality of their lives. G.R.E.A.T. students discover for themselves the ramifications of gang and youth violence through structured exercises and interactive approaches to learning. More information regarding G.R.E.A.T. may be obtained at <www.atf.treas.gov/great/great.htm>. ATF also participates in numerous violent crime task forces. Violent crime task forces staffed with ATF personnel are successful because they combine Federal agents and Federal resources with State and local law
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enforcement officers and their experience and assets. This is a powerful and effective alliance in confronting firearm violence.102 Bureau of Justice Assistance The BJA conducts ongoing program planning for discretionary grant initiatives. Gang Organized Crime Narcotics Violence Enforcement. This program focuses on drugs and firearms and assists local law enforcement and prosecution agencies in addressing the growing problem of gangrelated violence. Institute for Intergovernmental Research. Technical support and operational performance assessments are provided by IIR to the two Organized Crime Narcotics demonstration sites. Comprehensive Communities Program. This program requires the 16 demonstration sites to develop and implement citywide crime control and prevention strategies stressing partnerships between public agencies, private organizations, and local communities. More information is available through the BJA Clearinghouse (part of the National Criminal Justice Reference Service) at <www.ojp.usdoj.gov/BJA/html/bjaclear.htm>.
Department of Defense The Directorate for Accession Policy sponsors studies identifying the general characteristics of gang members and the nature and severity of the threat posed by extremist groups or gangs to the military services. It interviews former gang members now incarcerated in the U.S. Disciplinary Barracks and the Navy and Marine Corps brigs to determine their enlistment motivation and any continuing gang involvement while on active duty. In 1995, the Office of Family Policy allocated $6.4 million over 3 years for a Model Community Incentive Award program to provide youth with positive alternatives to violence. Of the 20 communities selected to participate, 3 sponsored programs specifically addressing gang and gangrelated activities. The lessons learned from these programs will drive future efforts. Department of Health and Human Services Substance Abuse-Related Violence Prevention Leadership Contract. This HHS-funded program offers training to help communities keep abreast of emerging trends concerning substance abuse-related violence, including youth violence and gang activity. Alcohol and Other Drug-Related Violence Prevention Demonstration Grant Program. HHS has made five grants under this program that demonstrate effective strategies for preventing substance abuse-related violence among high-risk youth. Information may be obtained through the National Clearinghouse for Alcohol and Drug Information at <www.health.org>.
Bureau of Justice Statistics The BJS is the primary source for criminal justice statistics in the United States. The BJS collects, analyzes, publishes, and disseminates information on crime, criminal offenders, victims of crime, and the operation of justice systems at all levels of Government. Although the BJS does not currently collect data exclusively on gangs or gang violence, several of the ongoing statistical series obtain general information on gang-related crime. These are the Survey of State Prison Inmates, the National Crime Victimization Survey and its supplemental School Crime Survey, the National Prosecutors Survey Program, and the Juvenile and Youth Gang Involvement in Violence, Drug Sales, and Weapons Use, and System Response. These and other publications are available at <www.ojp.usdoj.gov/bjs>.
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Department of Housing and Urban Development Operation Safe Home. This initiative focuses joint task force operations on aggressive interdiction of violent and drugrelated crimes in publicly funded housing. Law enforcement initiatives are coordinated with prevention, intervention, and postenforcement strategies in the targeted residential development.
Office of Community Safety and Conservation. Programs funded by this office promote gang prevention strategies in public housing communities. These programs encourage partnerships with community institutions, public housing authorities, and residents to address risk factors related to crime and drug abuse. The HUD web site can be found at <www.hud.gov>.
involve FBI personnel as guest speakers or lecturers in prevention programs targeting crime, drugs, gangs, and violence. See <www.fbi.gov/kids/ kids.htm> for more information on community programs. The FBIs main web site is <www.fbi.gov>. National Institute of Justice The NIJ's research portfolio contains a diverse array of research topics including an ongoing long-term evaluation of Gang Resistance Education and Training (G.R.E.A.T.). For the many other resources available through NIJ, see their web site at <www.ojp.usdoj.gov/nij>. Office of Juvenile Justice and Delinquency Prevention The proliferation of gang problems ranging from large inner cities to rural areas led to the development of OJJDPs Comprehensive Response to Americas Gang Problem. The Comprehensive Response involves the coordination of five components: national research, demonstration, evaluation, training and technical assistance, and information dissemination. Part of this response was the formation of the National Youth Gang Center, whose purpose is to expand and maintain a body of critical knowledge about youth gangs and effective responses to them. There are many OJJDP publications available through the National Criminal Justice Reference Service, which may be accessed at <www.ncjrs.org>. The National Youth Gang Center address is <www.iir.com/nygc>. State and Local State, county, and municipal agencies conduct a variety of gang intervention and prevention programs. The following are some examples. California Safe School Program. For the past 10 years, the Sacramento County Sheriff s Department has provided dedicated law enforcement personnel to local schools to conduct gang prevention and intervention programs. With funding from the Law Enforcement Education Program, the Sheriff s Department presents a
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Department of Labor, Employment and Training Administration The Department of Labors ETA does not administer programs specifically designed to impact youth gangs, but several important components address the employment needs of economically disadvantaged youth. These components include assessment of an unemployed individuals needs and abilities, training in basic skills, job search assistance, work experience, on-the-job training, counseling, and support services. The ETA operates Youth Opportunity Area projects in high-poverty communities with serious gang problems in Boston, Chicago, Houston, Los Angeles, New York City, and south central Kentucky. The goal is to increase employment levels of out-of-school youth. This, in turn, should increase employment rates and have a positive impact on these communitiesincluding reduced gang activity. The Department of Labors web address is <www.dol.gov>. Federal Bureau of Investigation The FBIs community-based efforts include forming partnerships with local groups, addressing community meetings, and working with existing community networks like the Urban League. The Community Outreach Program works jointly with the Boys & Girls Clubs of America, National Family Partnership, Race Against Drugs, General Federation of Womens Clubs, Youth against Violence, Drug Abuse Resistance Education (DARE), Parent Resources and Information on Drug Education (PRIDE), and National Night Out. The FBIs school-based initiatives center on the AdoptA-School Program, which includes Junior Special Agent, mentoring, and tutorial projects. Others
Gang Awareness class that focuses on recognition and identification of gang activity, local historical data, and current prevention, intervention, and suppression programs. This training targets school administrators, counselors, teachers, campus monitors, bus drivers, secretaries, and maintenance personnel and is made available to Parent Teacher Associations, community groups, and local businesses. Project S.A.V.E. Safe Alternatives and Violence Education is a collaborative program involving the Sheriff, Police, and Probation Departments in Sacramento County. Students who have been referred to the program for weapons possession or violent behavior at school must attend an 8-hour class along with a parent or guardian. Increasing referrals from school districts indicate the success of the program.103 Gang Resistance Is Paramount. In an attempt to curb gang membership and discourage future gang involvement, the city of Paramount, California, initiated the G.R.I.P. program. The program includes three major components. The first involves neighborhood meetings that provide parents with support, assistance, and resources as they try to prevent their children from joining gangs. The second component comprises a 15-week course for fifth-grade students and a 10-week course for second-grade students. The lessons deal with graffiti, peer pressure, tattoos, the impact of gang activity on family members, drug abuse, and alternative activities and opportunities. Finally, a school-based followup program is implemented at the ninthgrade level to reinforce what children learned in the elementary grades. The program builds self-esteem and focuses on the consequences of a criminal lifestyle, the benefits of higher education, and future career opportunities. Three studies by the City of Paramount Community Services and Recreation Department show significant effects in terms of participants developing negative attitudes toward gangs and staying out of them.104
Teens on Target. Administered by Oakland, California, Youth Alive! nonprofit agency, TNT aims to reduce youth injuries and deaths from gang-related and other gun violence through peer education, intervention, mentoring, and leadership development. TNT leadersmany of them violence victimsdeveloped a training curriculum to address the relationship between violence in the contexts of family, guns, gangs, and drugs; causes and effects of violence; and advocacy skills necessary to stop such violence. Leaders conduct student workshops, mediate conflicts between rival racial groups, and visit adolescents recovering from violent injuries to dissuade them and their friends from retaliation. A sister initiative operates in Los Angeles. Together, the two TNT programs have won many awards for their work, including a California Peace Prize.105 Parents and Schools Succeeding in Providing Organized Routes to Travel. A unique program designed to protect children from gangs, PASSPORT is a joint effort of the Visalia, California, school district, the police department, parents, and community organizations. Supervised routes are provided for students to use when traveling to and from school in high-crime or gang-oriented areas. Maps designating recommended routes are provided for parents. Police routinely patrol the PASSPORT communities and routes. School administrators and the safe school coordinator also monitor and walk the PASSPORT routes. Parent volunteers stand in front of their homes and just watch during specified hours. Fights, intimidating behaviors, or unsafe activities are immediately reported to the nearest school or to other appropriate agencies. Media publicity about PASSPORT encourages all citizens to watch over school children to ensure their safe passage to and from school. The program depends on cooperative, volunteer efforts; actual dollar costs are minimal.106
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District of Columbia Youth Gang Task Force. Faced with criminal activity increasing in violence and randomness and with growing disregard for school authority, the District of Columbia Public Schools created the Youth Gang/Truancy Unit in 1993. The primary responsibility of the unit is to address gangrelated crime and violence in or near the schools. This unit is composed of community-oriented individuals representing the varied racial makeup of the District of Columbia. The YGTF serves as the intelligence unit for the school systems security organization by actively identifying gangs operating in the communities in which the schools are located. The YGTF collects and maintains information on street language, graffiti, other gang identifiers, behavior, and criminal activity trends relating to firearms and drugs. Information gathering is not limited to students and school personnel but includes a variety of community resources. The YGTF, which has identified nearly 200 gangs in Washington, D.C., maintains a close liaison with the Metropolitan Police Department. The YGTF assists local administrators in addressing the potential for organized crime and violence in the schools and surrounding communities. Conflict resolution between gangs and gang members has become the primary goal of their intelligence effort. Conflicts between gangs and gang members originating in the community directly affect the schools and vice versa. The YGTF aggressively pursues mediation between the conflicting parties. In the last 4 years, the YGTF has successfully mediated over 80 gang disputes and conflicts in the D.C. Public Schools. The YGTF strongly believes that successful mediation is dependent upon neighborhood follow-ups. Members of YGTF conduct nightly neighborhood follow-ups to the conflicting parties homes and gang hangouts. The YGTF also provides workshops and training for administrators, teachers, support staff, parents, students, and community organizations.107 Florida GangNet. The Florida Department of Law Enforcement in partnership with the Florida Gang Investigators Association, Florida Department of Corrections, and regional
multiagency gang task forces has implemented a statewide gang intelligence database known as GangNet. This database will serve the Federal, State, and local criminal justice communities by providing criminal intelligence and investigative information on gang activity to legally authorized users. GangNet can be accessed only through a secure criminal justice network known as CJNET. Security Threat Group Intelligence Unit. The Florida Department of Corrections has developed this unit to maintain safe and secure operations for staff, visitors, and inmates by identifying, certifying, and monitoring Security Threat Group activity, coordinating all intelligence with other criminal justice agencies, and providing community awareness programs and education. The result has been a comprehensive gang intelligence-gathering program that has produced a blueprint of gang activity in Florida. Each month the Florida Department of Corrections distributes an intelligence report to all criminal justice agencies in the State. Local agencies are notified within 30 days of the release of a gang-affiliated inmate to the community or to probation supervision. In addition, detailed information related to offenders and gang activity in Florida is available to the public on the agencys web site at <www.dc.state.fl.us>.108
Iowa Law enforcement in the Dubuque, Iowa, area uses a number of programs to raise awareness about gangs and to inform the citizenry of gang activity in their area.109 Approximately 50 community gang awareness presentations are given each year. These presentations contain slides of actual graffiti found in the community and provide citizens with firsthand information concerning gang activities. Dubuque law enforcement conducts inservice training for school administrators, teachers, bus drivers, clerks, and custodians
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as well as staff from local social service agencies. The intent is to increase their knowledge of gangs and the effects on children, and to raise their awareness that the kids they meet may be involved in gang activity. The Drug Abuse Resistance Education. The DARE program is provided in schools to children at the sixth- and eighth-grade levels. Parental notifications are sent to parents of suspected gang members. The packet contains a letter from the Chief of Police describing how and why a child is suspected of being involved in gang activity, along with several helpful brochures. The packets are handdelivered to the parents by an officer. Law enforcement gives graffiti zero tolerance. Once graffiti is located, an official report is filed, the graffiti is documented through photographs, and the property owners are contacted and requested to promptly remove or paint over it. Graffiti reports declined from a high of 159 in 1994 to only 33 in 1998, an indication that the zero tolerance policy is an effective tool. In some cases, juveniles who needed to perform community service hours were used to remove or cover the graffiti, at their expense. A Community Policing bike patrol program has four officers assigned full-time. These officers have numerous contacts on a day-today basis with kids who are suspected of being involved in gang activity, or who are candidates to join gangs. The officers rapport with them has been very positive. The community has formed a CommunityBased Taskforce on Gangs, Drugs, and Youth Violence. The mission is to inform the public, and a web site has been developed where information about local activity is posted <www.dbqcommtask.org>.
Streetworkers Program. Using a nontraditional outreach approach, it operates from community centers throughout the city, and maintains facilities in middle and high schools. This program employs streetworkers aged 25 to 55 who work closely with gang members to mediate disputes and gang truces in schools and throughout the community. They also help gang members and their families gain access to much-needed social services.110 Youth Services Providers Network. Implemented in June 1996, this network of services was formed in three of Bostons most troubled neighborhoods. The network is a partnership of many of Bostons youth service organizations and city agencies to address teenage runaways, dropout prevention, mentoring, job training and placement, tutoring, and building leadership skills.111 Alternatives to Incarceration Network. Individuals enter ATIN as a condition for their sentence deferment or as a condition for parole or probation. Youth offenders receive counseling, substance abuse treatment, job skills training, and monitoring from Boston service providers.112 Safe Neighborhood Initiative. SNI offers community residents the opportunity to work with law enforcement and Government officials to identify and address neighborhood issues using SNI advisory councils and subcontracted programs. SNI targets high-crime, low-income neighborhoods. Its revitalization efforts include the organization and education of local merchants, job-training programs, expedited city services, and a municipal priority to rehabilitate abandoned property.113
Massachusetts Boston, Massachusetts, has several intervention and prevention programs serving at-risk youth.
Minnesota The St. Paul Police Department works closely with other local agencies to deal with gang intervention and prevention. They have been working with the Boys & Girls Clubs of St. Paul and currently have 225 high-risk youth involved in a gang prevention program. They also helped to
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develop a gang intervention program that deals with educational issues, employment, life skills, social skills, community service, and tattoo removal. There are currently 56 ex-gang members in this program. In addition, the police department, in cooperation with DARE, School Liaison, and Teacher Gang Awareness Training, has built a strong relationship with the schools. The officers have the opportunity to learn about problems and address them before they get out of hand. Community forums on gang awareness also help to keep the community involved with the effort.114 New York The Suffolk County Police Department in Long Island, New York, works closely with school districts to share information on possible gang-related activity. The department invites each school to a seminar at the Police Academy and disseminates a special informational booklet, Keeping Schools Safe into the 21st Century. By making this seminar an annual event, the police department is developing a cooperative strategy for dealing with the growing problem of gangs. Oklahoma The Oklahoma Department of Corrections has implemented the Regimented Inmate Discipline program for men and the Female Offender Regimented Treatment program for women. The goal of the programs is to provide an alternative to standard imprisonment and a way to positively restructure behavior. Trainees who complete the program develop respect for themselves as well as others, gain the ability to accept authority, learn self-discipline and accountability, acquire higher self-esteem, and become productive citizens. Both the RID and FORT programs are highly structured, boot camp-like environments wherein exercise, military-style discipline, education, Moral Reconation Therapy, and a positive work ethic are used to provide a sense of self-worth, maturity, responsibility, and a chemical-free lifestyle.115 Texas Anti-Gang Office and Task Force. Begun by Houstons mayor in the early 1990s, the office developed a computerized gang
geomapping and tracking system to identify the location of gangs and gang-related gun violence, and the location of youth program resources. Thus, hot spots of gang activity and necessary youth services are linked through this information system. Although it has not been evaluated, the mayors Anti-Gang Office and Task Force is a promising city-level management initiative.116 Gang Education Awareness Resistance. This program is a partnership among the Anti-Gang Office, the school district, and two police departments. It helps schools with gang-related security problems. Association for the Advancement of Mexican Americans Gang Prevention Program. This program provides legal education and a wide range of services for at-risk youth. Gang-Related Information Tracking. The regional system serves more than 50 Houston area law enforcement agencies.
Virginia Norfolk Gang Squad. Investigators with the Norfolk Police Department Gang Squad give talks to area civic leagues, churches, and groups interested in curbing the youth gang trend. Working with the Norfolk Public School System, the Gang Squad has created a forum for the exchange of information and ideas among school board members, schoolteachers, school staff, and the police department. The Gang Squad teaches and furnishes information on gang and group trends and in return receives information on problems occurring at the schools. The Gang Squad provides investigative services to those schools with a high incidence of criminal activity during school hours or on school property. The Gang Squad encourages elementary schools to be more aggressive in making gangs unattractive to students. The Norfolk Gang Squad has acquired grant funds to hire additional street officers to work overtime with the Gang Squad investigators.117
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Fairfax County Gang Unit. The police department has a gang unit that focuses exclusively on gang suppression, intervention, and prevention. The Gang Unit undertakes intelligence collection and analysis, criminal investigation, and proactive enforcement. Data on gangs and gang members, including photographs and gang investigation documentation, are entered into a database. A project spearheaded by the Fairfax County Police Department has transformed the database from a single agency information system into a regional gang database involving 19 other jurisdictions in the Northern Virginia region. Members of the Gang Unit also provide gang awareness education to other members of the Fairfax County Police Department, hosting several 40-hour gang education classes each year for experienced officers and abbreviated sessions for rookie officers and command staff. The Gang Unit also provides gang awareness education to the community, schools, and other law enforcement agencies.118 Northern Virginia Barrios Unidos is part of the nationwide antigang Barrios Unidos with 24 chapters. The Virginia Department of Criminal Justice Services and the Arlington Health Foundation fund the Northern Virginia
chapter in Fairfax County. It holds a Tuesday night rap session that attracts 35 to 50 teenagers. The program offers teenagers tutoring, classes in computer technology and graphic arts, and access to a free gym five nights a week. There are counseling sessions, and discussions are facilitated between former and current gang members and the police, between students and school representatives, and between adults and youths. The teenagers run monthly dances as a way to raise money to outfit the community center they use, acting as their own security staff. They also act as their own judicial board of review if a youth violates the rules of conduct at any of the activities. Punishment may consist of being banned temporarily from the Barrios Unidos facilities and being forced to do community service, such as cleaning the gym. The program condemns the criminal aspects of gang lifefighting, selling and taking drugs, stealing cars, and vandalismbut it supports the good aspects of what such a group offers young people. Barrios Unidos gives youth a constructive alternative, so they can be recognized for positive instead of negative activities.119
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Section V. Recommendations
The NAGIA believes that implementation of the following recommendations will greatly enhance the ability of criminal justice professionals and communities to effectively address the gang problem together.
Gang Denial
The education of the public, school administrators, community leaders, and law enforcement officials concerning the detrimental effects of gang denial is critical to controlling gang growth and its impact on the community. Public and institutional denial of the existence of gangs and a lack of proactive community measures are perhaps the greatest contributing factors in the alarming increase in the number, size, and strength of gangs. Denying the presence of gangs in a community significantly hampers effective prevention of gang growth and development during the early stages when violence is limited and active measures can effectively deter the problem. To counter gang denial, the NAGIA strongly encourages some level of gang recognition training for all police departments, school and public officials, and communities. Programs such as G.R.E.A.T., DARE, and other local social service programs are available for school and community education, while regional gang investigators associations, the RISS projects, and the U.S. Attorneys Law Enforcement Coordinating Committees (LECC) offer excellent training sessions for law enforcement officers.
Gang Definitions
There is a need for standardized definitions of a gang, gang member, and gang crime. If criminal justice professionals are to effectively work together and share gang-related intelligence across jurisdictions, it is imperative that they employ the same standards to determine what constitutes a gang, gang member, and gang crime. Many states do not have a gang definition, either formal or commonly understood, among jurisdictions within that state. In fact, there are many different definitions among jurisdictions at the State and local levels, which make it difficult to have a common discussion on gang issues. The lack of a common definition also contributes to the complexity of quantifying the nature and extent of the gang problem. NAGIA representatives have developed a recommended definition of the term gang to facilitate a national discussion: Gang. A group or association of three or more persons who may have a common identifying sign, symbol, or name and who individually or collectively engage in, or have engaged in, criminal activity which creates an atmosphere of fear and intimidation. Criminal activity includes juvenile acts that if committed by an adult would be a crime.
Uniform Crime Reporting of Gang Activity

In order to comprehend the scope and dimension of the gang problem and to accurately measure the effectiveness of antigang programs, there is a need for uniform crime reporting on gangs and gang activity. Accurate reporting is needed not only from municipal and county law enforcement agencies, but also from schools. The standardization of gang definitions may help alleviate this problem. The FBIs full implementation of the National Incident Based
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Reporting System (NIBRS), which collects information reported through the Uniform
Crime Reports (UCRs), will also help in this endeavor.
Law Enforcement Intelligence Sharing

The sharing of gang intelligence is an issue of great concern throughout all levels of law enforcement. Usually, the most effective sharing of information takes place informally between individual law enforcement officers. The problems endemic in sharing information among the many Federal law enforcement agencies exist to a large degree within some local law enforcement agencies. Gang, narcotics, homicide, and other units within municipal police departments must ensure that intelligence is communicated department-wide. In addition, law enforcement administrators need to recognize that the gang problem transcends geographic borders, making it essential that gang investigators meet regularly with their colleagues from other jurisdictions and receive advanced training at seminars. Because of the violent nature of gang members, both inside prisons and in communities, the sharing of information among criminal justice professionals has become an issue of public safety. The NAGIA strongly recommends that all law enforcement agencies consider membership in their local RISS project to facilitate the sharing of gang-related intelligence through the RISS National Gang Database, conferences, and information sharing meetings.
Correctional Intelligence
There is a lack of intelligence coordination between police departments and corrections officials. This is largely due to the fact that many officers are unaware of the wealth of intelligence related to gangs and gang members available within the corrections community. Corrections officials and databases within Federal, State, and local prison systems are an unexploited source of vital intelligence. Many correctional facilities identify gang members, validate gang membership, and have the capability to monitor mail, telephone calls, and visits. The NAGIA encourages police agencies to work cooperatively with corrections departments through partnerships involving information sharing, fugitive apprehension, and specialized enforcement. Additional information on the benefits of these cooperative efforts are outlined in the article Police Corrections Partnerships, Issues and Practices, published by the National Institute of Justice (NIJ) in March 1999 and available through the NIJ web site at <www.ojp.usdoj.gov/nij>.
Gang-Related Training
The explosion of gang activity in the United States has resulted in a tremendous increase in the availability of training about gangs. However, information presented at some of these training programs and conferences is outdated or inaccurate. The NAGIA believes that there is a need to identify and support worthwhile training sessions, conferences, instructors, and events related to gang training. This endorsement will help to ensure that only accurate and up-to-date information is disseminated to criminal justice professionals and others who have a need for instruction. The NAGIA is currently developing criteria to establish a mechanism to endorse training classes and instructors.
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Legislation
Increased awareness of gang activity has led to a proliferation of Federal, State, and local gangrelated laws with varying degrees of effectiveness. There is a need to identify and track legislation pertaining to gang prevention and suppression issues and to provide well-informed guidance to legislative sponsors. There is also a need to catalog and evaluate existing legislation to provide examples of beneficial statutes to those seeking to shape new legislation. Currently, the NAGIA is working with the authors of two Senate bills and six House bills relating to antigang violence. The NAGIA has a standing committee in place to examine proposed gang-related legislation. The National Youth Gang Center maintains a comprehensive list of gang legislation on its web site at <http://www.iir.com/ nygc/maininfo.htm#Legislation>.
Use of Resources
Law enforcement agencies cannot effectively combat the gang problem on their own. There is an abundance of untapped resources within many communities to assist in the fight against gangs. The NAGIA strongly recommends that law enforcement agencies reach out to social service agencies, nonprofit community assistance agencies, faith-based groups, schools, and private businesses to promote a comprehensive and coordinated community action plan to deal with gang suppression, intervention, and prevention.
Gang Officers
Experience in working with gangs is important to law enforcements success in their antigang strategies and goals. Many police departments have formed gang units and have developed specialized positions within these units. The ability of officers to effectively combat gangs is greatly enhanced by accumulated on-the-job experience. Many police officers and other law enforcement agents routinely rotate into other job assignments every few years, thereby diminishing the institutional knowledge of a particular unit. Expertise regarding gangs is particularly difficult to maintain because gangs on both local and national levels are unpredictable and readily adapt their methods of operation to changing circumstances. Therefore, it is critical that at least some of the personnel involved in gang enforcement have extensive experience working with gangs. The NAGIA recommends that law enforcement agency administrators consider these factors when rotating or reassigning personnel from a gang unit.
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Section VI. Conclusion

As we enter a new millennium, we must remain vigilant and continue to strengthen our efforts to combat gangs. Although the United States has experienced reductions in the violent crime rate recently, gangs continue to present a formidable problem. We must intensify our efforts to stem the assault of gangs on American society. Recognition of the scope and dimension of this adversary and a comprehensive and cooperative community action plan to counter the gang problem are critical to success.
46
The National Alliance of Gang Investigators Associations

California Gang Investigators Association
Sgt. Wes McBride Los Angeles County Sheriff s Department 3010 East Victoria Street Rancho Dominguez, CA 90221 (310) 603-3105 Office E-mail: wmcbride@socal.rr.com wdmcbrid@lasd.org Web page: <www.hitech.com/cgia>
Midwest Gang Investigators Association

Captain Don Vrotsos Dubuque County Sheriff s Office PO Box 1004 Dubuque, IA 52004-1004 (319) 589-4402 Office E-mail: dav3125@aol.com Web page: <www.mgia.org> Officer Robert (Jerry) Simandl Chicago Police Department 6427 West Irving Park, Suite 145 Chicago, IL 60634 (312) 746-9259 Office (773) 622-4264 MGIA E-mail: Rsima80012@aol.com
East Coast Gang Investigators Association

Detective Wes Daily, Jr. Suffolk County Police Department 30 Yaphank Avenue Yaphank, NY 11980 (516) 852-6117 Office E-mail: plrwes@erols.com Web page: <www.ecgia.com>
National Major Gang Task Force

Ms. Lina Presley Indiana Department of Correction Indiana Government Center, E334 302 West Washington Street Indianapolis, IN 46204 (317) 233-4773 Office E-mail: lpresley@coa.doc.state.in.us Web page: <www.nmgtf.org>
Florida Gang Investigators Association

Mr. Cory A. Godwin Corrections Program Administrator Security Threat Group Intelligence Unit Florida Department of Corrections 2601 Blair Stone Road Tallahassee, FL 32399 (850) 410-4581 Office E-mail: godwin.cory@mail.dc.state.fl.us Web page: <www.fgia.com>
Nevada Gang Investigators Association

Deputy Brent Royle Washoe County Sheriff s Office 911 Parr Boulevard Reno, NV 89512-1000 (775) 328-6311 Office E-mail: broyle@smtp.co.washoe.nv.us Web page: <www.ngia.org> Association Address: PO Box 50846 Sparks, NV 89435-0846
Louisiana Gang Investigators Association

Mr. Michael R. Reister Louisiana State Police 300 East Airport Drive Baton Rouge, LA 70806 (225) 925-3793 Office Email: reisterm@eatel.net
Mid-Atlantic Regional Gang Investigators Network

Mr. Donald Lyddane Federal Bureau of Investigation Safe Streets and Gang Unit 935 Pennsylvania Ave NW, Room 5064 Washington, DC 20535 (202) 324-4245 Office E-mail: mpdcgang1@aol.com Web page: <www.hidta.org/margin>
Northern California Gang Investigators Association

Sgt. Larry Rael Sacramento County Sheriff s Department 9250 Bond Road Elk Grove, CA 95624 (916) 875-0443 Office E-mail: ncgia@inform.net
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Northwest Gang Investigators Association

Sgt. Michael Yates 1100 W. Mallon Spokane Police Department Special Investigations Unit Spokane, WA 99260 (509) 625-4024 Office E-mail: myates@spokanecounty.org Web page: <www.icehouse.net/lbs/nwgia.html>
Bureau of Alcohol, Tobacco and Firearms

Mr. Ted Baltas Chief, Major Case Branch, Intelligence Division Bureau of Alcohol, Tobacco and Firearms 650 Massachusetts Avenue NW, Room 7000 Washington, DC 20226 (202) 927-8856 Office E-mail: tcbaltas@atfhq.atf.treas.gov Web page: <www.atf.treas.gov>
Oklahoma Gang Investigators Association

Sgt. Jerry L. Flowers Oklahoma City Police Department 701 Colcord Avenue Oklahoma City, OK 73102 (405) 297-3150 Office E-mail: jerry.flowers@ci.okc.ok.us Web page: <www.ogia.net>
Bureau of Justice Assistance

Mr. Luke Galant Senior Advisor for Law Enforcement Bureau of Justice Assistance 810 Seventh Street NW Washington, DC 20531 (202) 616-3211 Office E-mail: luke@ojp.usdoj.gov Web page: <www.ojp.usdoj.gov/BJA>
South Eastern Connecticut Gang Activities Group

Patrolman William C. Naholnik Waterford Police Department 41 Avery Lane Waterford, CT 06385 (860) 442-9451 Office E-mail: nik49@ctol.net Web page: <www.ctol.net/~segag> Association Address: PO Box 634 Waterford, CT 06385 (860) 437-0552 Phone/Fax/Tip Line
Federal Bureau of Investigation

SSA Michael A. Johnson Safe Streets and Gang Unit Federal Bureau of Investigation 935 Pennsylvania Avenue NW, Room 5064 Washington, DC 20535 (202) 324-5061 Office E-mail: majohn@cospo.osis.gov Web page: <www.fbi.gov/publish/safestreets/ ssreport.htm>
Federal Bureau of Prisons

Mr. William R. Fall Intelligence Analyst National Drug Intelligence Center 319 Washington Street, 5th Floor Johnstown, PA 15901-1622 (814) 532-4911 Office E-mail: william.fall@usdoj.gov Web page: <www.bop.gov>
Texas Gang Investigators Association

Detective Victor Bond Harris County Sheriff s Department 601 Lockwood Street Houston, TX 77002 (281) 999-1518 Office E-mail: vbond@pdq.net Web page: <www.tgia.net>
Department of Justice
Mr. Bruce Delaplaine Deputy Chief Terrorism and Violent Crime Section U.S. Department of Justice 601 D Street NW, Suite 6500 Washington, DC 20530 (202) 307-2163 Office E-mail: bruce.delaplaine2@usdoj.gov Web page: <www.usdoj.gov>
Virginia Gang Investigators Association

Detective Randy Crank Norfolk Police Department 3661 East Virginia Beach Boulevard Norfolk, VA 23502 (757) 664-7161 Office E-mail: gangcop42@aol.com Web page: <www.mindspring.com/~vgia> Association Address: PO Box 1573 Norfolk, VA 23501
48
Office of Juvenile Justice Delinquency Prevention

Mr. Jim Burch Program Manager Office of Juvenile Justice Delinquency Prevention 810 Seventh Street NW, 3rd Floor Washington, DC 20531 (202) 307-5910 Office E-mail: burchj@ojp.usdoj.gov Web page: <http://ojjdp.ncjrs.org>
National Youth Gang Center

Mr. John P. Moore National Youth Gang Center PO Box 12729 Tallahassee, FL 32317 (800) 446-0912 Office E-mail: jmoore@IIR.com Web page: <www.iir.com/nygc>
National Drug Intelligence Center

Ms. Susan Bartle National Drug Intelligence Center 319 Washington Street, 5th Floor Johnstown, PA 15901-1622 (814) 532-4633 Office E-mail: sbb@ndic.osis.gov Web page: <www.usdoj.gov/ndic>
Office of National Drug Control Policy

Mr. George A. Kosnik Chief, Law Enforcement and Justice Branch Office of National Drug Control Policy 750 Seventeenth Street NW Washington, DC 20503 (202) 395-6795 Office E-mail: George_A._Kosnik@ondcp.eop.gov Web page: <www.whitehousedrugpolicy.gov>
Regional Information Sharing Systems

Mr. Gerard P. Lynch, Esq. Chairman, RISS Center Directors Association Executive Director, Middle AtlanticGreat Lakes Organized Crime Law Enforcement Network (MAGLOCLEN) 140 Terry Drive, Suite 100 Newtown, PA 18940 (800) 345-1322 ext. 335 Office E-mail: glynch@magloclen.riss.net Web page: <www.iir.com/riss>
49
50
Notes
1. U.S. Department of Justice, Office of Juvenile Justice and Delinquency Prevention, Highlights of the 1997 National Youth Gang Survey, Washington, DC, March 1999. 2. Lt. Michael C. McCort, The Evolution of Street Gangs: A New System of Organized Crime, Phoenix Police Department, July 1995, 4. 3. U.S. Department of Justice, National Drug Intelligence Center, Hispanic Gang Focus Group: Selected Findings/Conference Minutes, Johnstown, PA, March 1998, 1. 4. Justice, Highlights. 5. Det. Wes Daily, Jr., Suffolk County, New York, Police Department, and President of the East Coast Gang Investigators Association. 6. Daily. 7. U.S. Department of Justice, Office of Juvenile Justice and Delinquency Prevention, 1995 National Youth Gang Survey, Washington, DC, August 1997, 2. 8. U.S. Department of Justice, Office of Juvenile Justice and Delinquency Prevention, 1997 National Youth Gang Survey: Preliminary Findings, Washington, DC, 5. 9. U.S. Department of Justice, National Drug Intelligence Center, NDIC Street Gang Symposium: Selected Findings, Johnstown, PA, April 12, 1995, 1. 10. Lt. Michael C. McCort, Street Gangs in Phoenix: A Brief History and Perspective, Phoenix Police Department, 1994. 11. Louis W. Gentile, Youth Gang Report, Commonwealth of Pennsylvania, Office of Attorney General, October 1994. 12. Justice, NDIC, Hispanic Gang Focus Group, 1. 13. Shelly Feuer Domash, Our Gangs: Wars, and Warriors, Go Local, New York Times, November 23, 1998. 14. Justice, Highlights. 15. Mike Robinson, Jury Convicts Gangster Disciples in Drug Conspiracy, Associated Press, May 9, 1997. 16. U.S. Department of Justice, National Institute of Justice, Victim Costs and Consequences: A New Look, Washington, DC, January 1996, 1. 17. Investors Business Daily, Crimes Cost, May 9, 1996. 18. R. De La Cruz, Path of a Bullet, We All Pay the Price, Long Beach Press Telegram, November 10, 1996, K-1. 19. The Indianapolis Newspapers, Inc., Good News on the Crime Front, November 25, 1998, A08. 20. Michael J. Sniffen, Crime Drops Nationally But Increases in Seattle, Associated Press, March 18, 1998. 21. Good News on the Crime Front, A08. 22. U.S. Department of Justice, National Drug Intelligence Center, National Street Gang Survey Report1998, Johnstown, PA, December 1998. 23. President William J. Clinton, Radio Address of the President to the Nation, The White House, Washington, DC, January 11, 1997. 24. U.S. Department of Justice, National Institute of Justice, Preventing Gang and Drug-Related Witness Intimidation, Washington, DC, November 1996. 25. Justice, NIJ, Preventing Witness Intimidation. 26. Justice, NIJ, Preventing Witness Intimidation. 51
National Alliance of Gang Investigators Associations 27. Associated Press, Wife of Latin Kings Gang Member Accused in Murder-for-Hire Scheme, November 18, 1998. 28. Associated Press, Four Could Face Death Penalty in Indictment Against Gang Members, February 9, 1998. 29. Associated Press, Gang Member Sentenced to Life in Witness Murder, August 11, 1998. 30. Associated Press, Son Testifies Against Alleged Gang Members, Despite His Father s Slaying, October 27, 1998. 31. Kenneth S. Trump, President and chief consultant of National School Safety and Security Services. Mr. Trump is a nationally recognized expert on school safety and security issues. His e-mail address is <kentrump@aol.com>. 32. Samuel Greengard, Have Gangs Invaded Your Workplace? Personnel Journal, Volume 75, Number 2, February 1996, 46. 33. Genevieve Buck, Gangs Find Crime Pays Better When on the Job: Workplace Opening Doors to New Stuff, The Chicago Tribune, September 28, 1997, C1. 34. Fred Bayles, Street Gangs Making Inroads into Businesses, USA Today, November 7, 1997, 3A. 35. Department of Defense, The Secretary of the Armys Task Force on Extremist Activities: Defending American Values, March 21, 1996, 34. 36. Associated Press, Fort Carson Soldier Convicted of Running Guns, Drugs, May 21, 1997. 37. Matt Spetalnick, Military Weapons Cache Destined for Gangs, Reuters, May 23, 1992. 38. Eric Houston, Army Investigates Possible Gang Activity at Fort Lewis, Seattle PostIntelligencer, December 30, 1992; Eric Houston, Soldier Tells of Murder WeaponsHe Says He Drove Getaway Car from Fort Lewis to Fife, Seattle Post-Intelligencer, December 19, 1992; Peter Lewis, Two Soldiers are Linked to Slayings at Fort LewisSuspects Admit They Played a Role, Affidavit States, Seattle Times, December 19, 1992; Timothy Egan, Army Fears that Gang Violence has Reached West Coast Bases, Minneapolis Star Tribune, February 3, 1993. 39. Information provided by Special Agent Carter Smith (U.S. Army Retired), U.S. Army CID Command, June 1999. SA Smith was the team chief for the Armys first GangExtremist Team located at Ft. Campbell, Kentucky. 40. Smith. 41. Sharon Withers, Gangs in Indian Country, Rocky Mountain Information Network Bulletin, March 1998. 42. Information verified by Captain Christopher Grant, Rapid City, South Dakota, Police Department, June 1999. Captain Grant is considered one of the nations foremost experts on Native American involvement in street gang activity. 43. Jeff Flock, Chicago Policeman Accused of Being Gang Member, CNN Interactive, URL: <http://www3.cnn.com>, February 18, 1997. 44. Mike Robinson, Troubling Question: Is the Man Wearing the Badge a Street-Gang Member? Associated Press, February 11, 1997. 45. Samuel Maull, Policeman Pleads Guilty to Charges of Leaking Info to Murderous Drug Gang, Associated Press, April 24, 1997. 46. Associated Press, Prosecutor Accused of Tipping Drug Ring Leaders, June 9, 1999. 47. Associated Press, Police Volunteer Found Guilty in Heist, August 27, 1999. 48. Gil Trevizo, Getting Out the Gangsta Vote: 21st Century VOTE and Chicago Politics, URL: <http://mail.utep.edu/~trevizo/GangstaVote.txt>. 49. George W. Knox, A Comparison of Two Gangs: The Gangster Disciples and the Vice Lords, Journal of Gang Research, Vol. 5, No. 2, Winter 1998, 45. 52
National Gang Threat Assessment 50. Kevin Fedarko, Long Arm of the Outlaw, Time, May 19, 1997, 42. 51. U.S. District Court, Northern District of Illinois, Eastern Division, Superseding Indictment No. 95 CR 508, December 5, 1996. 52. The Beginning of the People & Folk Nations, URL: <http://www.geocities.com/RainForest/ 4207/gangs.html>. 53. Knox, 45. 54. The Beginning of the People & Folk Nations. 55. Robert Becker and Andrew Martin, Gang Both Public Enemy and Private Political Pal, Chicago Tribune, July 28, 1996, 1. 56. Mid-Atlantic Great Lakes Organized Crime Law Enforcement Network Conference, Conference Handout Material, Baltimore, Maryland, July 1998. 57. Lynda Richardson, Trial of Jailed Leader Offers Contrasting Views of Latin Kings, LatinoLink, November 18, 1996, URL: <http://www.latino.com/news/1118nkin.htm>. 58. Tom Hays, Drug Plea Ends Reign of Latin King Reformer, Associated Press, January 16, 1999. 59. Chuck Neubauer, V.O.T.E.s Mysterious Money Trail, Chicago Sun-Times, September 1, 1995, 23. 60. Jennifer Gonnerman, Gangs Behind Bars: The Bloods Arent a Huge Problem in New York CityUnless Youre in Jail, The Village Voice, October 21, 1997, 40. 61. U.S. Department of Justice, National Drug Intelligence Center, Street Gangs and Prison: A Symbiotic Relationship, National Drug Intelligence Digest, Vol. 1, No. 3, June 1998, 3. 62. Associated Press, Drug Crackdown on Hells Angels Launched, February 17, 1997. 63. U.S. Department of Justice, National Drug Intelligence Center, The Hells Angels Outlaw Motorcycle Club: A United States Perspective, January 1998. 64. Justice, NDIC, The Hells Angels Outlaw Motorcycle Club. 65. Information provided by Lt. Charles Berard, Milwaukee, Wisconsin, Police Department. 66. Lt. Terrence P. Kinneen, New Hampshire State Police, and President of the International Outlaw Motorcycle Gang Investigators Association. 67. Sandra Hahn, Female Gang Members in Jail, American Jail Association, Jail Operations Bulletin, Vol. 6, No. 11, 3. 68. Information provided by Probation/Parole Officer Sandra Hahn, Washington County, Minnesota, Department of Court Services, and recognized expert on female gangs; U.S. Department of Justice, National Drug Intelligence Center, Female Violence and Gang Membership, National Drug Intelligence Digest, Vol. 1, No. 3, June 1998, 4. 69. Peter Schwartz, Shock Wave Anti-Warrior Alvin Toffler, Institute for National Strategic Studies, January 19, 1997. 70. John Rice, Drug War Moves Into Cyberspace, Reuters Information Service, July 14, 1997; FARC Promotes Wars in Cyberspace, Janes Defense Weekly, July 15, 1997; FARC Promotes Wars in Cyberspace, La Tercera, Las Americas Crime Review, July 16, 1997, URL: <http//www.pcusa.com/lacr/lacr.html>. 71. William Durkin, NCICInternational Crime Fighting Tool? The Investigator, No. 1, December-January 1996, 14. 72. Christopher John Farley, Hip-Hop Nation, Time, February 8, 1999, 57. 73. Sgt. Ron Stallworth, Gang Intelligence Coordinator for the Utah Department of Public Safety. Sgt. Stallworth is considered the foremost law enforcement authority on the subject of gangsta rap music and its correlation to the street gang culture and has authored several books on the subject. His telephone number is (801) 284-6222.
53
National Alliance of Gang Investigators Associations 74. Information provided by Deputy Brent Royle, Washoe County Sheriff s Office, and President of the Nevada Gang Investigators Association. 75. Information provided by Sgt. Michael Yates, Spokane, Washington, Police Department, and President of the Northwest Gang Investigators Association. 76. U.S. Department of Justice, Office of the Attorney General, National Strategy to Coordinate Gang Investigations: A Report to the President and Congress, Washington, DC, December 1995. 77. Information provided by Ted Baltas, Chief, Major Case Branch, Intelligence Division, Bureau of Alcohol, Tobacco and Firearms, April 1999. 78. U.S. Department of Justice, Office of Juvenile Justice and Delinquency Prevention, Office of Justice Programs, Youth Gang Consortium Survey of Gang Programs, Washington, DC, May 1998. 79. Justice, OAG, National Strategy. 80. Information provided by Don Lyddane, Federal Bureau of Investigation, Safe Streets and Gang Unit, Washington, DC, March 1999. 81. Justice, OAG, National Strategy. 82. Justice, OAG, National Strategy. 83. Justice, OAG, National Strategy. 84. Justice, OAG, National Strategy. 85. Justice, OAG, National Strategy. 86. U.S. Department of Justice, Office of Juvenile Justice and Delinquency Prevention, Office of Justice Programs, Youth Gang Programs and Strategies, Supplemental Material, Washington, DC, April 1999. 87. Information provided by Lina Presley, Indiana Department of Correction, and board member of the National Major Gang Task Force, March 1999. 88. Information provided by Captain Don Vrotsos, Dubuque County, Iowa, Sheriff s Department, and Chairman of the Midwest Gang Investigators Association, March 1999. 89. Justice, OJJDP, Supplemental Material. 90. U.S. Department of Justice, Office of Juvenile Justice Delinquency Prevention, Promising Strategies To Reduce Gun Violence, Washington, DC, February 1999, 30. 91. Justice, OJJDP, Promising Strategies. 92. Information provided by Lt. Joseph Mollner, St. Paul, Minnesota, Police Department, and President of the Minnesota Chapter of the Midwest Gang Investigators Association, May 1999. 93. Justice, OJJDP, Supplemental Material. 94. Justice, OJJDP, Supplemental Material. 95. Information provided by Sgt. Jerry Flowers, Oklahoma City Police Department, and President of the Oklahoma Gang Investigators Association, March 1999. 96. Yates. 97. Flowers. 98. Information provided by Jim Burch, Office of Juvenile Justice and Delinquency Programs, U.S. Department of Justice, Washington, DC, March 1999. 99. Burch. 100. Burch. 101. Justice, Youth Gang Consortium Survey. 102. Baltas.
54
National Gang Threat Assessment 103. Information provided by Sgt. Larry Rael, Sacramento County, California, Sheriff s Department, and President of the Northern California Gang Investigators Association, May 1999. 104. Justice, OJJDP, Supplemental Material. 105. Justice, OJJDP, Supplemental Material. 106. Justice, OJJDP, Supplemental Material. 107. Lyddane. 108. Information provided by Cory Godwin, Florida Department of Corrections, and President of the Florida Gang Investigators Association, June 1999. 109. Vrotsos. 110. Justice, OJJDP, Promising Strategies, 31. 111. Justice, OJJDP, Promising Strategies, 31. 112. Justice, OJJDP, Promising Strategies, 31. 113. Justice, OJJDP, Promising Strategies, 32. 114. Mollner. 115. Information provided by Lea Klingler, Oklahoma Department of Corrections, March 1999. 116. Justice, OJJDP, Supplemental Material. 117. Information provided by Det. Randy Crank, Norfolk, Virginia, Police Department, and President of the Virginia Gang Investigators Association, May 1999. 118. Information provided by Lt. Mike George, Fairfax County, Virginia, Police Department, and Regional Director of the Mid-Atlantic Regional Gang Investigators Network, May 1999. 119. Sylvia Moreno, Anti-Gang Group is Changing Lives, The Washington Post, Fairfax Weekly, March 4, 1999, 1.
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