Alberta Gang Reduction Strategy

Alberta Gang Reduction Strategy

For additional copies, contact: Safe Communities 800, University of Lethbridge Tower 10707-100 Avenue Edmonton, Alberta T5J 3M1 Tel: (780) 644-5595 Fax: (780) 644-5609 Website: www.safecommunities.gov.ab.ca ISBN 978-0-7785-8617-3

Alberta GANG REDUCTION STRATEGY NOVEMBER 2010

II Alberta Gang Reduction Strategy

Table of Contents Executive Summary... 1 The Alberta Gang Reduction Strategy... 5 Gang-related Crime and Violence in Alberta... 5 Research... 5 Vision... 6 Roles and Responsibilities... 7 Community Involvement... 7 Goals... 8 Strategic Directions... 8 Moving Forward... 25 Intended Outcomes... 25 Conclusion... 26 Appendix... 27 Background... 27 Characteristics of Gangs and Gang Activity... 29 Challenges in Addressing Gangs... 32 Developmental Life Course Model... 35 Building a Balanced Approach... 37 A Collaborative Process...40 What Was Heard: The Need for Community Involvement... 42 Summary Table...44 Bibliography...46 Alberta Gang Reduction Strategy III

MESSAGE FROM THE PREMIER Gangs are a growing problem across Canada, and Alberta is no exception. Organized crime is taking root in many of our communities and we need to work together to stop this kind of criminal activity from changing the character of our province. We recognize this challenge, and we are taking action. The Alberta Gang Reduction Strategy is a comprehensive, long-term approach to suppressing gang crime in Alberta. It requires government, municipalities, educators, parents and community leaders and agencies to commit to the common goal of reducing gang-related crime in Alberta. Through these coordinated and collaborative partnerships, we are able to address risk factors associated with gang involvement, and identify what we can do to intervene with young people at risk of being recruited into a gang. We realize there s no easy answer. In order to effect lasting change and keep our communities safe, we need to support community-led actions to curb the growth of gangs by reducing their size and influence. Albertans work hard and expect to live, work and raise their families in safe, vibrant communities. They deserve nothing less. Whether we re aware of it or not, gang crime affects us all. This is not an issue we can afford to ignore. This plan strikes a balance between awareness, prevention, intervention, and enforcement. Albertans can be assured that we are committed to reducing gang crime in our communities and we will make a difference. Sincerely, Ed Stelmach Premier of Alberta IV Alberta Gang Reduction Strategy

EXECUTIVE SUMMARY Gangs are a growing problem in jurisdictions across Canada, including Alberta, and have become a matter of great public concern. Gangs have spread throughout many of our communities, and are engaged in a variety of criminal activities mostly the sale of illegal drugs, but also other serious crimes including extortion, fraud, identity theft, human trafficking, and living off the avails of prostitution. They routinely use violence to enforce their operations and are likely to carry weapons, especially firearms. Gangs undermine public safety and personal security. Gang-related shootings and homicides cause fear and apprehension in our communities. Gang slayings represent an increasing proportion of overall homicides, and since gang members are targets for violence in any place and at any time; they place everyone around them even innocent Albertans at risk. They also threaten to rob Alberta s youth of productive, healthy and happy futures. Gangs actively recruit our children and youth, especially those facing challenges such as mental illness, addictions, behavioural disorders, abuse or prolonged mistreatment, and those who are marginalized or socially excluded due to race, gender or socio-economic status. The gang lifestyle is especially alluring to disenfranchised youth who feel left out and left behind by society, offering them a false sense of hope, optimism, opportunity and belonging. The implications of gangs for our communities and our province are serious. Gang crime creates neighbourhood disorder that can affect not only property values and insurance rates but, more importantly, our quality of life. Many children and youth from Aboriginal communities are particularly vulnerable because they face additional risk factors such as inadequate housing and family violence, and struggle with identity issues, loss of culture and discrimination. Similarly, children from immigrant and refugee communities may have difficulty achieving a sense of belonging in mainstream society, compounded by socio-economic disparities, language barriers, and conflicts in values. Some have faced adverse living conditions and abuse in their countries of origin, and have significant health and trust issues. Law enforcement agencies are working diligently to combat gangs in Alberta. Traditional law enforcement has a vital role to play in stamping out criminal activity but more arrests alone will not solve the gang problem. Instead, we must take a comprehensive, long-term approach one that systematically reduces the ranks of gangs by stopping the recruitment of new gang members. Such an approach requires broad-based, collaborative engagement by all community members including parents, neighbours, teachers, health professionals, children and youth services, and community-based organizations working together in new and innovative ways to reduce gang activity in our province. Extensive research on promising practices and consultations with community stakeholders have identified a need for better information sharing, increased collaboration, improved efficiency and greater integration in the way that community partners take action to reduce gang-related crime in their communities. Certain key issues must be addressed, including the need for: Alberta Gang Reduction Strategy 1

Increased public awareness about the nature of gang crime, the factors that contribute to gang involvement, and what resources are in place to address it; Coordinated action to identify children and youth at risk and prevent them from gang involvement; Available programming to encourage gang members to leave the gang lifestyle behind for a healthy, productive future; Greater integration of data sources and intelligence analysis within law enforcement. The Alberta Gang Reduction Strategy provides a blueprint for action on gangs and gangrelated violence. The mission of the Alberta Gang Reduction Strategy is to suppress gang activity and reduce the influence of gangs in Alberta by working with community partners to promote strong and vibrant communities. This will be accomplished through the following goals: 1. Reduce gang-related crime and violence in Alberta 2. Strengthen ongoing efforts to develop an integrated, comprehensive, and sustainable approach to gang suppression The Strategy recognizes that action on gangs must also be led at the community level, with key community members collaborating in innovative ways to identify and respond to the unique needs, circumstances and factors around gangs in their communities. The Strategy aims to foster new and enhanced forms of partnership in Alberta communities, and will help communities pursue initiatives organized around four major areas of focus: Awareness, Prevention, Intervention, and Enforcement. Creating greater levels of collaboration and convergence among law enforcement agencies, community-based organizations, provincial services, and other key community partners will see resources used more efficiently and effectively. By reducing common barriers related to information sharing and jurisdictional boundaries, we can encourage innovation to accomplish more within existing budgets. Special attention should be given to reviewing the availability of existing resources within Aboriginal and Immigrant/Refugee communities in order to determine how community-led supports and early childhood strategies and services can best be supported to reduce the influence of gangs. The two goals of the Alberta Gang Reduction Strategy each include a set of strategic directions that will guide efforts to reduce gangs and gang-related crime in Alberta. 2 Alberta Gang Reduction Strategy

Goal one: Reduce gang-related crime and violence in Alberta Strategic Directions 1. Build community capacity through increased public awareness about issues related to gang activity 2. Support prevention and early intervention programs that address risk factors to dissuade young people from joining gangs 3. Develop exit strategies to help those who wish to leave the gang lifestyle 4. Continue integration among specialized law enforcement units and encourage close working relationships with community stakeholders 5. Increase effectiveness of specialized law enforcement units through the enhanced use of expert legal counsel and new legal tools Goal two: strengthen ongoing efforts to develop an integrated, comprehensive, and sustainable approach to gang suppression Strategic Directions 1. Facilitate the growth of collaborative networks among stakeholders, police, and government departments 2. Standardize data collection and information sharing practices among all police agencies in Alberta 3. Promote the coordinated and efficient use of existing resources 4. Pursue federal legislative amendments to support ongoing efforts to reduce gang-related crime and violence and ensure that provincial legislation is regularly reviewed and updated 5. Adopt the use of flexible strategies that recognize the importance of community engagement and cultural inclusion in promoting safe communities Alberta Gang Reduction Strategy 3

There are a number of initiatives that can be implemented in the immediate future that will improve the way we take action to reduce and suppress gangs. These include: Fostering enhanced community mobilization to address gang activity and gang crime through the creation of networks and partnerships; Improving collaboration among community partners to reduce the duplication of effort, use resources effectively and focus on achieving desired outcomes; Building public awareness about gangs, the factors that contribute to gang involvement, and available resources that parents can access to address risk factors. The gang problem can only be addressed through a sustained, long-term approach. It will require a continued commitment from the Alberta government and other partnering stakeholders to generate community capacity as a deterrent to gangs and gang crime. Working together, we can ensure Alberta remains a safe and secure place to work, live and raise a family. 4 Alberta Gang Reduction Strategy

THE Alberta Gang Reduction Strategy Promoting strong and vibrant communities is one of the strategic priorities of the Government of Alberta. The Alberta Gang Reduction Strategy sets out a comprehensive, strategic approach to addressing the challenge of gangs in Alberta through the efficient use of existing resources and support of community partnerships. Gang-Related Crime and Violence in Alberta Organized crime is a serious issue in Alberta but rising levels of gang-related violence have recently resulted in heightened concerns about public safety. 2008 figures from the Canadian Centre for Justice Statistics (CCJS) paint a grim picture: Alberta had the second highest provincial homicide rate in 2008, and approximately 25 per cent of all gang-related homicides in Canada occurred in Alberta. 90 per cent of gang-related homicides were committed in Edmonton or Calgary. The increased use of firearms by gang members is also a serious concern. From 1997 to 2008, only about 30 percent of all homicides in Canada involved the use of a firearm, although this figure has increased since 2002. However, in 2008, a firearm was used in 75 per cent of all gang-related homicides in Canada; in Calgary, this figure was 80 per cent, and 92 per cent of all firearm-related homicides were gang-related. Gang-related homicide investigations strain existing capacity and are difficult to solve. In Canada, 2006 data show that police cleared approximately 80 per cent of all homicides that were unrelated to gang activity. However, police cleared only 45 per cent of all gang-related homicides in Canada in 2006, with that figure dropping to 33 per cent in Alberta. Only a third of the 49 gang-related homicides recorded in Calgary between 2003 and 2008 have been cleared by police. This ratio is similar in Edmonton. Rural communities are not immune to high levels of violent crime. For instance, the 2008 CCJS Violent Crime Severity Index reveals that, on a per capita basis, the top ten communities with the highest level of reported violent crime were all located in rural Alberta. Aboriginal communities are heavily represented in these figures. Public acts of gang violence hurt all Albertans through increased health care costs, neighbourhood disorder, fear of crime, and economic consequences due to national perceptions of Edmonton and Calgary being gang-ridden, unsafe, and not worthy of future investment. Although recent efforts by police seem to have reduced the number of gangrelated shootings in Calgary, police agencies are hard-pressed to keep pace with resource demands related to ongoing investigations and gang suppression tactics. RESEARCH There is growing evidence that properly focused and well-designed crime prevention initiatives can reduce levels of crime and increase public safety. Policies and practices aimed at improving community safety have historically relied on crimecontrol strategies based on deterrence. Successful approaches require more than an effective criminal justice system response. If we are serious about building a safer Alberta, our vision, our planning, and our practices must be expanded and improved. Alberta Gang Reduction Strategy 5

Vision The Alberta Gang Reduction Strategy is based on a set of guiding principles that are intended to inform policies, initiatives and actions aimed at reducing gang crime through a collaborative and community-focused approach. Common understanding Any response to the impact of gangs and organized crime in Alberta should be undertaken through a shared understanding of their respective organizational structures and criminal activity. Integrated response A comprehensive approach to reducing gangrelated crime and violence involves multidisciplinary collaboration through partnerships among government, police, and communities. The collective result of bringing together a cross-section of stakeholders, resources, and diverse approaches supports a far more robust strategy than any one organization or program could create by itself. Community-based The unique assets and characteristics of communities affected by gang crime must be recognized as part of a flexible provincial strategy. Awareness of local needs will help to determine, develop and deliver grassroots solutions to gang-related crime that are innovative and culturally responsive in nature. Use of Proven Strategies Programs and initiatives with demonstrated measures of success should be identified through an evidence-based approach, and acknowledged to encourage similar forms of innovation at the local level. Balanced approach Awareness, prevention, intervention, and enforcement initiatives are equally recognized in terms of importance, with each being collectively supported by the others. Cultural competency Consideration of culture and history is necessary to address gangs in certain communities. Aboriginal, immigrant and refugee communities require programs that are culturally appropriate and relevant. Connection to cultural values and beliefs is an important protective factor for individuals and families. 6 Alberta Gang Reduction Strategy

ROLES AND RESPONSIBILITIES The goals and actions of the Strategy will align with the overarching Long Term Crime Prevention Framework. This broad framework will help to identify roles and responsibilities of all stakeholders to create a unity of purpose between various levels of government, police agencies, community groups, and individuals as they work together to address root causes of crime. COMMUNITY INVOLVEMENT IS KEY Although important, the public cannot depend solely on the police, the courts and the correctional system to protect them from gang violence. Community safety is equally dependent on the commitment and work of other sectors, including municipal planners, public health officials, educators, and child intervention workers. A coordinated and collaborative approach is essential for tackling those multi-faceted issues that most impact community safety including homelessness, mental health, addictions and family violence. This Strategy is based on broad, collaborative engagement involving the community as a whole, not just police. It recognizes and supports the role all community members have to play in reducing gang crime including parents, teachers, social workers, neighbours, and health professionals. It is responsive to the fluid nature of criminal organizations, recognizing that community actions and initiatives need to be agile and flexible, supported by robust and adaptive intervention and enforcement practices. COMMUNItIeS AND NON-GOVerNMeNt OrGANIZAtIONS Develop community-based initiatives to prevent and deter gang-related activity Deliver services at a community level GOVerNMeNt Establish provincial priorities through policy, standards, and legislation Coordinate services to ensure a continuum of programs and services Create conditions for a prosper ous and vibrant society POlICe Combat organized crime and gangs on a provincial basis through an integrated approach (alert) Conduct local enforcement action through the use of municipal gang units INDIVIDUAlS Albertans have a role to play as responsible citizens, parents, caregivers, neighbours, and family members Alberta Gang Reduction Strategy 7

Goals of the Alberta Gang Reduction Strategy The Alberta Gang Reduction Strategy has two strategic goals. 1. Reduce gang-related crime and violence in Alberta 2. Strengthen ongoing efforts to develop an integrated, comprehensive, and sustainable approach to gang suppression The first speaks to the mission of the Strategy, while the second addresses the need for systemic collaboration and innovation to maximize the capacity and coordination of available resources in support of the mission. The individual actions aligned with each of the two goals collectively support a balanced approach to gang reduction, incorporating elements of awareness, prevention, intervention and enforcement. STRATEGIC DIRECTIONS Goal One: Reduce gang-related crime and violence in Alberta Strategic direction 1 awareness Build community capacity through increased public awareness about issues related to gang activity. Communities and community members are better positioned to deal with gang-related issues when they possess knowledge and information about how gangs operate, what factors contribute to gang involvement, and what kinds of approaches they can take to reduce gang activity. The Strategy seeks to build and share knowledge about gangs through the collection, synthesis and dissemination of information among young people, their families, their communities, police, and government. Action 1.1: Deglamorize the gang lifestyle and provide young people and their parents with meaningful information on positive alternatives. It is important that parents and other significant adults in young peoples lives have frank and open conversations about gangs, especially with those who are considered to be susceptible to gang involvement. This includes informing them about the dangers and perils of gang life in honest, credible and explicit ways; and debunking misconceptions that gangs offer power, glamour, money and excitement. Young people need to understand the harm that gangs can cause to themselves, their friends and family members; and the serious life consequences that can result from joining a gang. Empowered with credible and honest information, they will be positioned to make better choices and avoid gang involvement. 8 Alberta Gang Reduction Strategy

Communities can achieve this goal through a range of different approaches, such as: Action 1.2: Using communication methods that are popular and effective with children and youth, such as the Internet, texting, and social networking; Involving children and youth in the design of information and resources, and engaging youth as ambassadors; Working with community-based organizations to build awareness through mentoring and other programming with children and youth; and Tailoring specific messages for children, youth and families with at-risk factors. Educate young people and their parents or other meaningful adults about risk and protective factors that affect entry into the gang lifestyle. Adults in our communities are well positioned to identify warning signs or challenges such as drug use or mental health issues that place children and youth at greater risk of joining a gang. For example, child intervention authorities are uniquely placed to be able to identify key risk factors that place children and youth at high risk of gang involvement. Teachers in Alberta schools interact with Alberta s children and youth on a day-to-day basis. They can play a key role in spotting indications of trouble, and help connect children, youth and their parents and guardians with assistance. Accordingly, we need to empower parents and meaningful adults by providing them with knowledge, tools and access to resources in this regard. Action 1.3: Reduce the influence of gangs on individuals and communities through a continuous, balanced approach that promotes and publicizes existing prevention and intervention programs. Awareness efforts in this area will center on the establishment of an integrated website that provides information, research and resources about gangs; including prevention and intervention programs to reduce gang involvement among children and youth. The website will be tailored for use by various audiences (e.g., parents, children, and youth, and community-based organizations) and will provide web links that help connect Albertans with available programming. Online resources will include a searchable collection of publications and promising practices that will help communities identify and develop community-led prevention and intervention programs, including those communities facing unique challenges with gangs (e.g., Aboriginal, immigrant and refugee communities). Website content will be comprehensive and regularly updated, so that it remains current and useful. Through a variety of social networking initiatives and viral marketing, a shared understanding will develop among Albertans about ways in which we can effectively reduce gang activity. Alberta Gang Reduction Strategy 9

Strategic direction 2 PREVENTION Support prevention and early intervention programs that address risk factors to dissuade young people from joining gangs. The Safe Communities Innovation Fund encourages the continued development of community-led initiatives and can help to ensure that services and supports in the areas of awareness, prevention, intervention and enforcement activities operate in a coordinated and integrated manner. Prevention and early intervention services are effective in diverting young people from involvement in a gang. Disenfranchised youth who feel they do not belong in today s society are of paramount concern and may require supports that are tailored to their specific needs. Action 2.1: Increase opportunities to provide life skills training and entertaining alternatives to gang involvement for children and at-risk youth through the use of schools and community centres. Young people tend to seek out adventure and excitement; some gravitate to high-risk activities. Recreational activities such as creative arts, sports and adventure activities can promote leadership skills within children and youth by providing them with positive, healthy outlets for their energy and expression. Life skills training can build their resilience and instil in them a sense of hope and optimism about their future. Schools are social hubs, and serve as natural gathering places for children and youth. In addition to being centres of learning, schools offer infrastructure such as playgrounds, soccer fields, and gymnasiums that facilitate social and emotional development throughout childhood and adolescence. Community centres also serve a similar purpose. This makes schools and community centres ideal places to host recreational and pro-social activities, especially during the early years of a child s life when it can make a lasting difference. These facilities can be used to host community-led prevention initiatives after regular school hours particularly between 3:00pm and 6:00pm, which research indicates is a critical period of time for kids who may be at risk of joining a gang. Aboriginal communities face unique challenges in attempting to increase the use of schools as community centres. The need to partner with the federal government and Aboriginal communities and others will be essential for this particular action. Young people who are at risk of gang involvement may feel that it offers them better opportunities than mainstream society. By providing rewarding, enriching and fulfilling opportunities, we present them with a more compelling alternative. The Alberta government will work with communities to explore these types of opportunities for children and youth considered to be at risk. Examples include: After-school programs that teach life skills, pro-social skills, leadership development, job searching and workforce development skills; 10 Alberta Gang Reduction Strategy

Action 2.2: Supervised extra-curricular activities, including sports, recreation, and creative arts, particularly for those aged 7-12; Mentoring opportunities and apprenticeship programs that involve meaningful, healthy adults and positive role models in the lives of children and youth; and Development of innovative ways in which people can be motivated to dedicate their time and energy through volunteerism. Support the sustainability of existing cross-ministry initiatives that support early childhood development for children under the age of seven years. Research indicates that early childhood screening is an important tool in addressing young children s developmental needs which may prevent gang involvement. Early trauma or adverse experiences (i.e. FASD) can affect brain development among young children. This can lead to conduct disorders, attachment disorders, or mental health issues. If left unaddressed, this can lead to criminality and gang involvement. The Alberta government has invested in early childhood development and improving early childhood outcomes. For example, the cross-ministry Early Childhood Development Strategy was implemented under the Alberta Children and Youth Initiative to provide a range of health, social, and learning programs and services for children up to age six, including their families. Sustained cross-ministry and community partnership initiatives that address early childhood development and intervention for young children will provide assistance during these crucial years. Action 2.3: Determine how School Resource Officers can best be used to reduce the ability of gangs to recruit young people. School Resource Officers have maintained a presence in many Alberta schools for the past thirty years. They are members of local police services who act as a resource in junior and senior high schools. They help build relationships among students, the education system and law enforcement. They also serve as positive role models for children and youth. School Resource Officers offer another avenue for addressing gangs, supporting front-line efforts of patrol officers and specialized investigative units. They can utilize an approach that is tailored for each school s unique social environment, working with teachers, counsellors and other community partners to identify students who require some form of intervention, and facilitate exit strategies for those who are already in a gang. Although they may be unable to reach young people who no longer attend school, School Resource Officers have a vital role to play in helping those who are in school. Research should be undertaken to evaluate ways in which the program can be improved. A framework to standardize and optimize the roles of School Resource Officers in schools should Alberta Gang Reduction Strategy 11

follow, including elements such as staffing, training, and funding based on an evaluation of demographic and geographic needs. A focused expansion of the School Resource Officer program, including the potential for an increased presence in junior high schools, should be examined to address early intervention needs if the program is proven to be effective. Strategic direction 3 INTERVENTION Develop exit strategies to help those who wish to leave the gang lifestyle. Create intervention programs for gang members who wish to leave the gang lifestyle, and support community-led initiatives that focus on young people who may be associated to a gang. Community capacity should be leveraged to provide effective programming for those who are questioning their decision to join a gang. Action 3.1: Design and implement intervention programs for gang members and potential gang members who are neither in a custodial setting or under court-ordered supervision. There is a critical need to build upon the few intervention programs that currently exist in Alberta communities. Many communities do not have intervention programs in place. Gangs are not only an urban phenomenon; they exist across the province. Appropriate intervention programs must therefore be accessible not only in urban areas of the province, but also in communities where government services may be lacking. Communities will be encouraged to develop and build capacity and expand intervention programs in their communities through activities that include: Identifying gaps in intervention programming for those over 17 years of age, and exploring ways of linking programs to employment and life skills training; Developing and/or enhancing life skills programming for adults; Determining ways in which individuals can be prompted to leave gangs; Exploring ways of expanding program capacity to meet demand; Fostering integrated and collaborative partnerships among communitybased organizations, police, and other service providers to provide intervention services, with particular emphasis on mental health services and addictions treatment services; and Establishing exit point strategies, such as communication mechanisms and motivational interview skills that can help connect individuals with intervention programming and services. 12 Alberta Gang Reduction Strategy

Action 3.2: In partnership with Aboriginal communities, support the development of local and provincial intervention strategies that reduce Aboriginal peoples involvement in gangs. As with prevention initiatives, it is important that intervention strategies for Aboriginal communities are developed in close partnership with those communities. The unique context of gang involvement in Aboriginal communities is largely rooted in socio-economic disparities, loss of culture, discrimination, and historical factors such as colonization. Accordingly, intervention strategies need to consider, account for and address these factors, and be delivered in ways that are culturally responsive. There are currently very few intervention initiatives in place in Aboriginal communities and there is a need to address this gap, particularly in remote and isolated communities. The RCMP Aboriginal Gang Strategy has partnered with the Correctional Service of Canada to develop community supports and re-entry strategies for former gang members who have been released from federal institutions. This Strategy recognizes the need to involve Aboriginal communities in exploring the need for locally-based and locally-driven intervention initiatives that promote individual and community resiliency by enhancing protective factors. This approach fosters community mobilization and recognizes traditional and community knowledge. Responses must be flexible, recognizing the differences between urban and rural contexts and the diverse needs, issues, and cultural backgrounds of Aboriginal communities across the province. The lack of safe alternatives in many Aboriginal communities requires that the implementation of a pilot safe home program be included among these initiatives. This pilot will assist Aboriginal children and youth who wish to leave the gang lifestyle, providing intensive and culturallybased wrap-around intervention to Aboriginal youth and their families. To support this idea, the Alberta government will work with the federal government to address jurisdictional barriers that are contributing to socio-economic disparities between Aboriginal communities and other communities in Alberta. This includes identifying ways of working around jurisdictional barriers to deliver equitable and effective services in Aboriginal communities. Action 3.3: Develop exit strategies by enhancing gang intervention programs in both adult and youth correctional institutions. There are a large number of gang members in correctional institutions. Many of these adult and young offenders may wish to leave their gangs but do not know how. We know the reach of gangs does not stop at the prison walls and leaving a gang can be a dangerous venture. It is therefore important that counselling sessions undertaken as part of a gang intervention program take place in a structured, secure setting to reduce the potential for retribution. Enhancing the provision of integrated, individualized gang intervention programming in correctional institutions will help us reduce gang involvement among adults and children and youth at risk. These programs need to be linked and coordinated with other community Alberta Gang Reduction Strategy 13

partners and other provincial systems. Intervention programming in corrections and other custodial settings needs to include elements such as: Culturally-appropriate services and supports that address the unique challenges and circumstances of individuals from Aboriginal, immigrant and refugee communities; Exit strategies that help gang members leave a gang safely while they are in a custodial setting; and Collaborative and coordinated case management, with follow-up on the part of community partners. Community partners will be engaged to develop effective gang exit strategies and intervention programs in provincial adult and young offender correctional centres. These programs will be based on evidence and best practices, and involve multi-disciplinary, collaborative approaches that are culturally appropriate. Action 3.4: Expand intervention programs for individuals under court-ordered community supervision. Court-ordered supervision in the community also offers opportunities for the implementation of gang intervention strategies. Currently, there is a lack of intervention programming integrated with these arrangements, which could be implemented in collaboration with probation case plans. Gaps exist in key programming areas. Targeted services are needed for youth who complete their respective periods of probation and leave a group home setting only to find themselves at high risk of gang involvement. Exit strategies and enhanced supervision are also needed for certain high-risk youth and adults, who may otherwise be tempted to breach their probation, parole, or pre-trial release conditions. Community partners can play a role in the enhancement of gang intervention programming for individuals under court-ordered supervision. Probation officers also play an important role, as do specialized police units that focus on habitual offenders, many of whom are at risk of joining a gang. Strategic direction 4 ENFORCEMENT Continue to promote integration among specialized law enforcement units and encourage close working relationships with community stakeholders. The increasing trend towards multi-jurisdictional approaches to the investigation of organized crime and gangs have been strengthened through the Alberta Law Enforcement Response Teams initiative (ALERT). Teams of police officers and support personnel from various police agencies in Alberta work together in an efficient and effective manner, thereby overcoming barriers to information sharing and procedural roadblocks that historically hindered inter-jurisdictional investigations. 14 Alberta Gang Reduction Strategy

The Strategy supports the continued progress being made in the field of integrated law enforcement, which enhances investigative capacity across Alberta. Action 4.1 Ensure sufficient surveillance capacity exists to monitor certain forms of gang activity. Surveillance teams serve a particularly important purpose in the investigation of gang-related crime. The creation of additional surveillance units resulting from the transfer of resources from the Sheriffs Branch into ALERT, and enhanced levels of dedicated surveillance within integrated enforcement teams, is a positive step towards meeting the need for adequate surveillance capacity within an integrated law enforcement model. Strategic direction 5 JUSTICE INITIATIVES Increase effectiveness of specialized law enforcement units through the enhanced use of Crown counsel and new legal tools. Criminal organizations specialize in the sale and distribution of illegal drugs, motivated by significant profit margins. They will not disappear on their own. As the Canadian justice system evolves over time in response to social and legislative change, so too will the means by which law enforcement tackles the problem of gang-related crime. The growing complexity of procedural requirements to meet a higher burden of proof in court necessitates that police receive expert legal advice from Crown counsel in a timely manner to support the investigative process involving complex forms of organized crime. New enforcement strategies are available. Civil and criminal forfeiture is an effective means by which criminal profits can be seized by the province and sold for cost recovery purposes. Alberta, as well as other western provinces, has already passed legislation that gives police and prosecutors the enhanced ability to pursue gangs through the use of a new set of legal tools that fall under provincial jurisdiction. Action 5.1: Make legal counsel available on a continuous basis through the Crown to provide advice to specialized investigative units during the investigative process. Increasingly complex gang crime investigations should be informed by specialized legal counsel as much as possible. This will help ensure that investigative procedures conform to established legal principles, lessening the chance that crucial evidence will be excluded. Currently, provincial legal counsel is available to specialized investigative units on a continuous basis. This work by federal and provincial prosecutors is done in addition to their heavy case loads and other work, so their capacity to provide advice can be limited. Prosecutions involving gang members can be problematic since they cross provincial borders and jurisdictions. Generally speaking, Federal Crown prosecutors are responsible for drugrelated prosecutions while the Provincial Crown retains responsibility for other criminal offenses. Work is currently ongoing to examine the existing agreement between these two bodies with regard to complex investigations. Alberta Gang Reduction Strategy 15

The Alberta government will continue to work to ensure expert legal advice from Crown counsel is made available to police when required during complex criminal investigations. Action 5.2: Expand use of civil forfeiture legislation and criminal forfeiture process to curtail gang activity. Among the specialized skills needed in police agencies are those relating to civil forfeiture. A Civil Forfeiture Office has been created to enforce the provisions of the new Victims Restitution and Compensation Payment Act. This Act enables the Alberta government to obtain a court order forcing the forfeiture of property acquired by illegal means such as real estate, cars and cash to the Crown. This powerful tool can impact gangs at the financial level effectively helping deter gangs by undermining profit margins. The Alberta government will promote awareness and use of civil forfeiture legislation, and work with police agencies to ensure resources are in place in the ALERT structure to address the civil forfeiture process. Linking these resources with broader gang enforcement activities will assist in suppressing gangs through both criminal law and civil law channels, making it increasingly difficult for organized crime to benefit from lucrative criminal markets. Action 5.3: Enhance mechanisms by which potential informants and/or agents can be recruited from existing gangs or their network of associates. Police informants play a vital role in dismantling organized crime and criminal networks. They offer a level of insight that conventional evidentiary procedures often fail to provide. However, current challenges make it difficult for police to maximize the use of informants and agents in gang-related investigations in Alberta, particularly involving Aboriginal, immigrant and refugee communities. The Alberta government will develop options to maximize the use of existing programs where possible and develop new strategies where appropriate to increase the effectiveness of witness protection in Alberta, which is expected to have a positive impact on police use of informants and agents in some instances. 16 Alberta Gang Reduction Strategy

Goal Two: Strengthen ongoing efforts to develop an integrated, comprehensive, and sustainable approach to gang suppression Strategic direction 6 building networks Facilitate the growth of collaborative networks among stakeholders, police, and government departments. Police agencies, community-based organizations, governments, families and individuals need to combine their diverse expertise to identify and develop solutions that will reduce and suppress gang activity in their communities. Government departments, justice officials, and law enforcement agencies must also collaborate in order to optimize resources, reduce duplication and tackle gang crime as efficiently as possible. The Strategy aims to develop various collaborative innovative networks, wherein multiple partners with diverse backgrounds and experiences work together to share information, disseminate ideas, and identify and pursue innovative solutions and initiatives. Facilitating these networks will help communities develop novel approaches at the local level that address unique local challenges and reflect the shared responsibility for gang reduction. Action 6.1: Leverage existing resources to support the creation of community partnerships that reduce the ability of gangs to recruit members through grassroots prevention and intervention initiatives. A number of innovative community partnerships serve as examples of how we can work together to prevent young people from gang involvement. They involve a variety of stakeholders, including law enforcement agencies, government departments, and communitybased organizations. Existing funding mechanisms, such as the Safe Communities Innovation Fund, can serve as a simplified, single point of access to promote mobilization among public sector agencies and community-based organizations. Policy levers also play an important role in facilitating the ability of community partners to work together by reducing barriers to collaboration and making it easier for agencies and organizations to share information. Action 6.2: Establish a body of knowledge about gang reduction and make this information available to community leaders and the general public to raise awareness and support efforts to curtail gang activity in their communities. An important step in building community capacity relates to the brokering of relationships and information among communities and community leaders. By sharing perspectives and experiences, communities can learn from each other and adapt promising and leading initiatives to meet their unique needs. Alberta Gang Reduction Strategy 17

Collaborative and innovative networks have found success in many policy contexts, offering the opportunity to share information in a horizontal manner rather than through organizational hierarchies. They bring together individuals from a range of backgrounds, disciplines and occupations, and enable the spread of innovative ideas and approaches through social networking. These collaborative forums allow people to create grassroots solutions to emerging challenges and issues. Resulting networks become self-learning and self-organizing, and their lack of complicated bureaucratic procedures and top-down direction make them increasingly responsive to emerging issues. The Alberta government will seek to establish a collaborative knowledge transfer network among community groups and social agencies to promote the development of local gang reduction initiatives. In addition to connecting communities, the network will play a valuable role in disseminating research and information on gang prevention. This will assist communities in the identification of opportunities to create innovative, multi-disciplinary community-led partnerships that help prevent or reduce gang-related crime. PROMISING PRACTICE The Municipal Excellence Network is an initiative developed through the collaborative efforts of Alberta municipalities, municipal associations, and Alberta Municipal Affairs. This partnership provides an online resource tool that features a searchable collection of leading municipal practices from around the province. Other features include an online newsletter and access to various articles, web links, and education/training information. The MEnet website also recognizes municipal government excellence and promotes the sharing of knowledge among municipalities. Action 6.3: Ensure a coordinating body is in place to work with regional gang resource intervention teams to facilitate the development of community-based gang prevention and intervention initiatives. A coordinating body will work to improve communication and networking among community partners in their gang intervention efforts. This includes identifying and removing barriers to information sharing while respecting privacy issues, and addressing other instances of red tape. Other roles may include: facilitating collaboration among ministries on cross-ministry awareness, prevention and intervention initiatives; gathering, compiling and disseminating research, information and resources on promising gang reduction and suppression practices; 18 Alberta Gang Reduction Strategy

fostering the establishment of networks of relationships among Alberta government ministries, municipal governments, and other community partners; sharing expertise and developing relationships with other national and international centres of excellence in gang awareness, prevention and intervention; encouraging partnerships among community members to develop and implement community-led programming to suppress gangs; and engaging Aboriginal, immigrant and refugee communities in identifying unique cultural factors that contribute to gang involvement, and culturally-appropriate prevention and intervention strategies. Action 6.4: Develop multi-disciplinary Regional Gang Resource Intervention Teams to support gang prevention and intervention initiatives. The goal of this approach is two-fold: to promote community mobilization in developing and delivering intervention programming, and to facilitate information sharing and communication among community partners across Alberta. This is important to consider in light of the fact that a significant number of crime hotspots in Alberta are located outside of large urban centers. To support community-led prevention and intervention efforts, these teams will play a key role in helping to mobilize community efforts to develop and implement grassroots gang prevention and intervention programs, while serving as a link to a province-wide network of knowledge, experience and expertise in the area of gang reduction. Action 6.5: Establish linkages with ongoing initiatives that involve prevention and intervention strategies related to the reduction of gang-related crime. There are currently multiple projects and initiatives underway in Alberta that directly and indirectly relate to gang suppression, either through prevention, intervention or enforcement strategies. These include, but are not limited to: RCMP Aboriginal Gang Strategy; Alberta Children and Youth Initiative; Children s Mental Health Plan for Alberta; FASD 10-Year Strategic Plan; Healthy Kids Alberta; Alberta Drug Strategy; Safe and Caring Schools; Youth Justice Committee Program; Law Enforcement Framework. Alberta Gang Reduction Strategy 19

It is important that the goals and activities identified in the Alberta Gang Reduction Strategy are aligned with these other initiatives. By establishing linkages, we can develop formalized relationships among partners, share information and knowledge, and reduce incidents of duplication. The implementation of the Long Term Crime Prevention Framework will also support this approach. Strategic direction 7 INTELLIGENCE-LED APPROACH Standardize data collection and information sharing practices among all police agencies in Alberta. The Alberta government is working with other western provincial and territorial governments to improve collaboration and integration among law enforcement agencies throughout western Canada. This will enable enforcement activities to cross provincial boundaries more efficiently, thereby levelling the playing field with gangs, whose criminal activities occur without regard for jurisdictional boundaries. An investment has already been made in a variety of initiatives that will increase interoperability and information sharing among Alberta police agencies. A commitment by the western provinces to the use of a national database will further support this strategic direction. Action 7.1: Ensure that ongoing committee work on data collection practices and Uniform Crime Reporting standards (UCR) completed by the Canadian Association of Chiefs of Police and Canadian Centre for Justice Statistics is considered. What gets measured, gets done is an abbreviated form of an old saying, and is particularly relevant to the issue of outcome measurement as it relates to gang-related crime. Issues related to measurement and data capture should be addressed; in other words, we lack the type of data that is necessary to provide a quantifiable measure of gang-related crime. For example, the definition of gang-related crime can vary by police agency and it is often difficult to determine whether a homicide is gang-related. A lack of clarity also surrounds the issue of drug trafficking and other forms of non-violent property crime. This appears to be a widespread phenomenon afflicting practically all police agencies in Canada and the United States. A critical factor for consideration involves providing police agencies with the ability to capture gang-related crime data during the UCR coding process, which will allow for the measurement of gang-related crime in their respective jurisdictions through a prescribed set of universal metrics. Over time, this action will enable police agencies to provide a clear picture of gangrelated crime in their respective jurisdictions. 20 Alberta Gang Reduction Strategy