ew York City's
renowned Compstat crime-fighting program, originally created to
measure and map serious crime in city neighborhoods, has grown into
a sweeping data-collection machine that traces hundreds of factors,
many of which appear distant from the nuts and bolts of police
work.
The system, introduced in 1994 to focus largely on the seven
major crime categories, has changed in ways both substantial and
subtle, and now records 734 of what officials call indicators:
everything from concentrations of prostitutes to police overtime,
allegations of abuse by officers and how often police commanders
meet with community leaders.
The expansion reflects an acknowledgment that fighting crime is
not just about finding criminals and arresting them, but about
enlisting the support of communities and finding a way to do it
economically.
In effect, Compstat has become an intricate map of the city and
its ills — the annoying and the deadly — and an abacus upon which
officials can calculate how the Police Department is working to
alleviate them.
Gone are the days when murder, rape, robbery, assault, burglary,
grand larceny and auto theft were the central focus of searing
Compstat meetings in a cavernous room on the eighth floor of 1
Police Plaza.
Under the current commissioner, Raymond W. Kelly, Compstat has
further evolved, focusing also on minor offenses that can have a
major impact on the quality of city life: panhandling, squeegee men,
loud parties and barking dogs. And the weekly meetings have become
more collegial, with an atmosphere, Mr. Kelly said, in which
commanders are often put on the spot but spared the abuse that many
glumly suffered in years past.
"It's been broadened, and again, it is more collaborative, in the
sense that we're trying to share information as to what was done by
other commands to address problems," said Mr. Kelly, who took over
the force in January in his second tour as commissioner.
Compstat has long been admired nationally and internationally;
the system has been used by cities like Baltimore, and Caracas,
Venezuela, plans to use it. The concept has also been copied in its
hometown, where it has been brought into other agencies like the
Sanitation and Correction Departments, and where Mayor Michael R.
Bloomberg is considering using it to measure the effectiveness of
other city agencies.
The innovation was created and developed under William J.
Bratton, the police commissioner from 1994 to 1996, the first two
years of Mayor Rudolph W. Giuliani's administration; one of the
primary architects of the program was Jack Maple, Mr. Bratton's
deputy commissioner for crime control strategies. Mr. Maple died of
cancer last summer.
Mr. Bratton used Compstat to direct swift deployments of officers
to areas with high concentrations of crime and to hold commanders
accountable for crime problems in their precincts.
His approach turned into a police philosophy that changed the way
departments across America and in other parts of the world serve
their communities, drawing a nonstop procession of police commanders
and government officials from as far away as China and Chile.
Soon after it was introduced, it became part of the culture at 1
Police Plaza: twice-weekly meetings in which local commanders were
pushed, prodded and sometimes humiliated by senior officials who
pinpointed crime problems on their streets and broadcast their
failings.
Mr. Bratton defended the aggressive nature of the sessions in the
early days, arguing that precinct commanders were making $80,000 a
year. "If they can't deal with the pressure of that room, you can be
damn sure they can't deal with pressure out there on the street," he
said.
Mr. Kelly, however, said he felt that commanders, who are each
running what he called the equivalent of a $30 million to $40
million business, "shouldn't be abused, they should be treated with
dignity and respect, while held accountable for what happens on
their watch."
Eli B. Silverman, a professor at the John Jay College of Criminal
Justice and the author of "NYPD Battles Crime: Innovative Strategies
in Policing," said a certain amount of pressure was required in the
program's early days. "My own view was that in the beginning it
needed to be very forceful because you were starting something very
different," he said.
Mr. Kelly, who has made upgrading department technology a
priority, says he hopes to use teleconferencing to broadcast the now
weekly meetings to officials in boroughs beyond the one under
scrutiny each week.
And, it seems, there is much to learn. Mr. Kelly said the
meetings now focused on the number of precinct arrests that were
made by officers on overtime patrols, part of an effort to reduce
costs and ensure that enforcement is driven by crime rather than an
officer's desire for more overtime.
Compstat now also measures emergency response time, conditions in
police station houses and how many police cars are available for
patrol and how quickly those in need of repairs are turned around in
the department's shops.
The system also records the number of corruption allegations and
civilian complaints of police abuse in each precinct, which along
with community relations are important indicators of how a
department serves the people, according to Mark H. Moore, a
professor of criminal justice policy and management at the Kennedy
School of Government at Harvard University. Professor Moore, who has
been studying methods to measure police performance for five years,
contends that crime reductions alone provide an incomplete picture
of a police department.
He maintains that a police force's performance — or "profits" —
can be accurately gauged only by factoring in the "costs" of police
operations: not only the financial costs, but the toll that police
operations take on community relations, or how the department's use
of authority impinges on citizens' liberties.
"The degree that people feel alienated by the police is the
degree to which they are reluctant to cooperate with them, something
that makes the work of the police more difficult," he
said.