June 2003

The Memphis Shelby Crime Commission
119 South Main Street, Suite 450, Pembroke Square
Memphis, Tennessee 38103
(901) 527-2600

This report was produced in an effort to review the specific crime issues that are occurring in neighborhoods that border the University of Memphis. This report was prepared by the Memphis Shelby Crime Commission at the request of John Moore, Board Member of the University of Memphis Board of Visitors.

The research contained in this report is primarily derived from data collected from CompStat (computer statistics) through the Memphis Police Department, interviews with neighborhood association groups within the University District and survey data which were collected and analyzed by the University of Memphis Center for Community Criminology and Research (CCCR).

Additionally, universities and campus police departments throughout the United States were queried as to strategies and initiatives that have been employed in similar settings. Lastly, a national literature search was conducted through the internet as well as through Lexis/Nexus via the University of Memphis.

Acknowledgements

The Memphis Police Department and the University of Memphis Police Department responded promptly to requests for information and data. Special thanks are due to the Memphis Police Department CompStat division’s Captain Danny Stamps and Tom Kirby. As well, acknowledgement is due to the University of Memphis CCCR staff, specifically Dr. David Forde and Ashley Wolff.

Table of Contents

East Buntyn Historic
Joffre Area
Red Acres
Messick Buntyn
Normal Station
University Neighborhood
University Business Alliance (Formerly Normal Station Business Alliance)

1. Collection of Crime Data
2. Analysis of Crime in the University District Area

Section III: Concerns and Issues reported by Neighborhood Associations or Representatives

                                    Survey Administration and Results of Survey

Appendix

Notes

Introduction- A series of maps will be used to define the geographic location of the study. The map below outlines the entire area of Shelby County, Tennessee; the corporate city limits of Memphis are in yellow. The study area is contained within the Interstate 240 and Interstate 40 exchange loop.

The map below illustrates how the City of Memphis is divided into wards and precincts for the purpose of crime reporting. The study area is primarily contained within the Memphis Police Department (MPD) Central Precinct, which is identified in green on the map.

Specifically, the study area is contained within grid 525, although the eastern portion of the study area extends slightly into grid 521. The southern most portion of the study area borders the Southeast Precinct, specifically wards 725 and 726. The East Precinct borders the study area in ward 326. The study area is within the 38111 zip code for the City of Memphis and has an estimated 15,000 residents living within approximately 3.5 square miles.¹

The map shown below specifically outlines the study area. Some maps have identified Poplar Avenue as the northern boundary of the University District, while others report Walnut Grove as the northernmost boundary.² For this report, the University District will be identified with Walnut Grove as the most northern boundary, while Park Avenue is the southern boundary of the study area. Goodlett Street provides the eastern boundary and the western boundary lines shift from Holmes, Lafayette, Greer and Semmes Street, respectively.

Section I: Geographic Description, Boundaries and Demographics of Neighborhoods Contiguous to the University of Memphis

East Buntyn Historic

The East Buntyn Historic neighborhood lies in the center of the west border of the University District. Central Avenue provides the north boundary and the south boundary is located at the railroad tracks on Southern Avenue. The east and west boundaries are Highland and Greer, respectively. Joffre Civic is the neighborhood to the north and Messick Buntyn is the neighborhood located to the south. The University Consortium is located directly east of East Buntyn Historic. The East Buntyn Historic area is in ward 525 within the City of Memphis Police Department’s grid identification system. Businesses in this neighborhood are primarily located on or near Highland Street; they include restaurants, sporting goods, music and art stores; a Circle K convenience store; and a car wash.

Joffre Area

The Joffre Neighborhood lies in the northwestern portion of the University District. The northern boundary of this neighborhood is Poplar Avenue and the southern boundary is Central Avenue. The eastern boundary is marked by Highland and the west boundary is Lafayette Street. East Buntyn Historic is the neighborhood located directly south of Joffre. The University Consortium is located directly east of this area. Although the entire neighborhood is in ward 525 within the City of Memphis Police Department’s grid identification system, ward 524 borders the northern side of this neighborhood. Most businesses in this area are located on Poplar Avenue; they include fast food restaurants, Walgreens, a garden center, an auto repair shop, a video store and a liquor store.

Due to the location and separation of the census tracts, East Buntyn and Joffre Civic are combined for the purpose of reporting demographics through the United States Census Bureau. A little over 2,500 residents live in 1,354 residences within these two neighborhoods. The census reports 92% white occupants and 6% black residents in this area. Less than 5% of all available housing units are vacant. The median age category is 35-44 years old with the largest percentage of occupants falling in the 25 to 34 age range category. Over 75% of occupants in this area are home owners. Although the median household income in this neighborhood is approximately $50,000 annually, 32% of residents living in this area report an annual income between $50,000 to 99,000.³

Red Acres

Red Acres is the neighborhood directly north of the University District. The northern boundary of this neighborhood is Walnut Grove and the southern boundary is Poplar Avenue. The eastern boundary is Goodlett Street and the western boundary is Highland Street. While this neighborhood is within ward 525 of the Memphis Police Department’s grid identification system, ward 524 borders the northern section of the neighborhood. The University Consortium is located directly south of this neighborhood.

Slightly more than 620 occupants live in 292 residences in the Red Acres neighborhood. Over 95% of the residents are white and 5% of the occupants are black. Less than 6% of all available housing units are vacant. The majority of residents are female (55%) and almost 60% of all residents are 50 years of age or older. Over 97% of occupants in this area are home owners. Almost one half of the residents (45%) have a household income greater than $150,000 annually.⁴ A golf course is located within this neighborhood. No businesses are located in this predominately residential area.

Messick Buntyn

The Messick Buntyn neighborhood is located in the southwest portion of the University District. The northern boundary is the railroad tracks located at Southern Avenue and the southern boundary is Park Avenue. Highland Street provides the eastern boundary, while Semmes Street identifies the western boundary. This neighborhood is primarily located in police ward 525, with the western portion of the area abutting ward 521. This neighborhood is located the furthest south and borders ward 725 in the southeast police precinct. East Buntyn Historic is located directly to the north and the Normal Station neighborhood is located to the east. Approximately 3,800 residents occupy over 1,700 housing units in this area. Over 62% of the occupants are black residents, 32% are white occupants and over 3% of the residents are of Asian descent. At the time of the 2000 census, 92% of all housing units were occupied. Almost 40% of the residences are occupied by owners, while 60% are rental homes. Over 35% of the residents are between the ages of 20 and 34 years old, almost equally divided between males and females. Household income varies depending on the location within the neighborhood; from almost $19,000 to $30,000 annually. Almost 25% of residents however, report making less than $10,000 annually.⁵ There appears to be a higher number of business vacancies in this area since a number of businesses have vacated the area, presumably due to increased crime. Businesses that remain include fast food restaurants, a pager service business, a convenience store, hair care salons, and an auto parts and repair shop.

Normal Station

This neighborhood is located in the southeast parcel of the University District. The railroad tracks located at Southern Avenue provide the northern boundary and Park Avenue is the southern boundary. Highland Street identifies the west boundary and Goodlett Street is the east boundary of this neighborhood. This neighborhood is in ward 525 of the City of Memphis Police Department’s grid system. The southern portion of this area borders the Memphis Police Department East Precinct. Messick Buntyn is the neighborhood directly to the west and the University Consortium is located to the north of this neighborhood. Over 3,300 residents live in approximately 1,500 housing units in this area. Almost 81% are white occupants, 11% are black residents and approximately 5% are Asian occupants. At the time of the census, over 95% of the dwellings were occupied; 55% by renters and 45% by home owners. The median age group for this neighborhood is in the 25-34 category, with almost one half of the residents between 20-34 years of age. The higher percentage of renters in connection with the high percentage of young people, (presumably students) raises the concern of stability of neighbor residents in this area. The population is divided almost equally between males and females. The median household income is $31,000 annually, with the highest percentage (20.9%) earning between $35,000 to 49,000 annually. The majority of businesses in this area are located on Park Avenue or Highland Street. Some of the businesses include a music store, a consignment center, a discount flooring business, several restaurants, a plasma collection center, several check cashing locations, cash advance businesses and numerous pawn shops.

University Consortium

This neighborhood is centrally located in the university district and borders the east side of the study area. The north boundary is Poplar Avenue, while the railroad tracks at Southern Avenue serves as the southern boundary. Highland Avenue provides the west boundary and abuts the East Buntyn Historic area, while the eastern boundary is Goodlett. The neighborhood is in ward 525 within the City of Memphis Police Department’s grid system. This area is primarily the University of Memphis housing area and contains almost 1,500 dwellings which house over 3,600 residents. Over 78% of all households in this area are rental property. Further, 60% of the homes in this neighborhood are occupied by females, at the time of the 2000 census. The majority of the university dormitories are located in this area. Almost 70% of all residents are white, approximately 24% are black occupants and Asian residents make up approximately 5%. The median income is reported at approximately $17,000 annually. The businesses located in this area include several restaurants, book and music stores, a library, a Good Will store, a hotel, an auto repair shop and the YMCA.

University Business Alliance (formerly Normal Business Alliance)

The entire University area provides the boundaries for the University Business Alliance

Section II: Identification of Crime in the University District Area

The MPD Central Precinct has six wards and responds to calls for service in approximately 60 square miles. Over 140 police officers provide 24 hour coverage over four shifts to this area.⁶

Collection of Crime Data:

Crime data are reported and collected by the MPD according to wards or grids. Since the majority of the study area is in ward 525, this grid was used primarily. Data were collected over a time span of seven years, from 1996 through 2002, in several categories.⁷

Part one crime data were obtained from the Memphis Police Department. Part one crimes include murder, rape, robbery, burglary, aggravated assault and auto theft.⁸

1. Murder – Only one homicide was reported in ward 525 since 1996.⁹ The incident was in October of 2001.

2. Rape – Twenty-nine rapes have been reported in the University District since 1996. The highest numbers of rapes (8) were reported in 1998 and the lowest numbers (2) were reported in 2000. The offense location data do not reveal a particular problem area within the University District area. The data show an overall decreasing trend in this crime since 1996 in the University District, as in the rest of the City of Memphis.

3. Aggravated Assault – Aggravated assault is defined as an unlawful attack on another person for the purpose of inflicting serious physical injury. This type of assault is usually accompanied by the use of a weapon or by means likely to produce death or great bodily harm. Over 250 cases of aggravated assault have occurred in the University District since 1996. The number of reported aggravated assaults in the University District has almost doubled since the year 2000. The majority of these cases have been reported in the Messick Buntyn neighborhood. Aggravated assaults have also been increasing in the City of Memphis as a whole when viewing a 10 year trend.¹⁰

Only years 1996, 1999 and 2002 are shown in the location maps.¹¹

4. Robbery – Robbery is defined as the forcible removal of property from another.¹² Over 400 robberies have occurred in this ward since 1996. The main thoroughfares, Southern, Highland, Park and Poplar, contain the highest number of reported incidents of individual robbery. According to the data collected over a seven year period, this crime is slightly on the rise.

The following charts show the location of each of robberies in 1996, 1999 and 2002.

5. Robbery of a Business¹³ – Over 140 robberies from businesses have occurred in the University District since 1996. These crimes have been steadily declining since 1998. Due to the small number, no location chart or graph was created.

6. Burglary –Burglary is defined as the unlawful entering of a structure for the purpose of committing a felony or a theft. The use of force to gain entry is not required in order to classify an offense as a burglary. This is one of the highest reported crimes in this area over the past year.

Since 1998, burglary offenses have been classified into three categories; residential burglary, (home or apartment), non-residential (shed, garage, etc.) and business burglary. Prior to 1998, all burglaries were reported into one category. Since 1998, there have been 831 residential burglaries in ward 525.¹⁴

Although the trend line reveals a slight decrease in this category, there has been a 100% increase of residential burglaries that has occurred from 2001 to 2002 in the University District.

The heaviest concentrations of burglaries are occurring in the southern neighborhoods of the district, (Messick Buntyn and the east portion of the Normal Station neighborhood).

7. Non-residential Burglary –A non residential burglary is defined as the theft from a building (other than an occupied dwelling) such as a shed, or other structure. Prior to 1998, the offense code for Business Burglaries was included in Burglary-Non-Residential. Since 1998, 219 non-residential burglaries have been reported in the University District. These reported offenses are on the decline according to the data provided. The majority of non residential burglaries occur on main thoroughfares such as Park Avenue and Highland Street.

8. Business Burglary – Prior to 1998, business burglaries were included in the non-residential burglary category. In 1998, these burglaries received their own classification. Since 1998, a total of 227 business burglaries have been reported in the University District. Since most businesses are located on main thoroughfares, it is not surprising that Poplar Avenue, Highland and Park have the highest occurrences of business burglaries. The data show that these incidents are on the rise.

9. Auto Theft – Auto theft is the second highest reported crime (second only to larceny) in the University District. Since 1996, over 1,400 vehicles have been reported stolen from this area. With a large number of students in classes for extended periods of time, there is normally a predicable, uninterrupted period of time in which thieves may target vehicles for theft. The data provided show that the offense of auto theft is on the decline in the University area since 1996.

10. Larceny - The most frequently reported crime in the University District (as in most areas), is theft or larceny. Over 5,600 cases of theft have been reported since 1996 in the University District. Many of the items that are stolen are left visible and/or unsecured at residences or in vehicles. However, in many cases, vehicle windows are shattered and the interior ransacked, where primarily loose change, compact disks and other items are removed. The data confirm that this offense is on the rise.

Analysis of Crime in the University District area – Media coverage and arrests of suspects who have committed home invasions, robberies and thefts have been highlighted recently and indicate a surge in crime within the University District. Crime data do not reflect a drastically increasing crime rate in all categories of crime within the University District.¹⁵ However, the perceptions of some residents in the University District neighborhoods is that crime is increasing, their neighborhoods are deteriorating and offenses are not being reported to the local police department.

A review of the crime data over the past seven year reveals the greatest increase in reported crime has taken place in the category of property crimes, specifically in the area of residential burglary and theft.

Of the crimes committed against persons, (murder, rape, robbery and assault), the crime of aggravated assault has increased by 50% since an annual low was reported in 2000. Although the trend in individual robberies is only slightly on the rise when viewing a seven year span of data, the number of individual robberies has increased over 85% since 1999.

Reports of students being targeted as victims of robbery while traveling off campus have recently received media attention.

The reality of crime is one portion of this report, yet the perception of crime and the fear of crime is another element to be explored. Surveys and interviews were conducted with residents in the University District to obtain their perceptions of crime and the levels of the fear of crime in their neighborhoods. The residents’ beliefs and concerns are that crime is on the rise in the University District and the question asked is, "What factors have contributed to the increase in crime or the fear of crime in the University District area"?

From the surveys, interviews and meetings conducted with local residents and business owners, the following concerns were identified.

Home and apartment rental costs - According to local rental guides, homes and apartments within a five mile radius of the University are now some of the lowest priced within the City of Memphis. Apartment complexes that were previously the lowest priced housing available in Memphis have undergone renovation and subsequently have increased their rental rates. This has drawn individuals to the University District who seeks lower cost rental housing. The cost of a two bedroom apartment on Southern Avenue was advertised at $395.

Goodwill Stores - The presence of the Goodwill store located on Highland and Walker is a source of concern for many residents and business owners. Allegedly, homeless or transient individuals have been observed in the area after hours in search of items to steal for personal use or sell. Businesses operating during the evening report individuals are seen going through the bins and bags that have been donated, on a regular basis.

Blood and Plasma Banks - Another concern voiced by residents is the presence of two blood and plasma banks in the University area. Although these agencies have been present for several years and many of their clientele consist of students, the belief by residents of the community is that these agencies draw individuals in desperate need of funds. Local blood and plasma collection agencies could not provide demographic information as to individuals locally who frequent their business.

Food Assistance - The presence of at least two locations which provide hot meals to street people are a concern for many residents: St. Luke’s Church and the Vineyard Church. Additionally, St. Luke’s Church operates a food pantry and according to their staff, the people who benefit from the food pantry are in a different situation than those who participate in the hot meal program. Residents assisted by the food pantry are normally families who have homes, however are in need, due to joblessness or a temporary struggle. The hot meal ministry is normally utilized by individuals who are homeless.¹⁶

Panhandling - Panhandling is frequently cited as a growing problem in and around the businesses adjacent to the University. When a community is successful at reducing panhandling, it achieves two worthwhile objectives. One, it makes the use of public spaces lass harassing and intimidating. Two, it decreases the funds that are available to addicts to sustain their addiction.¹⁷ Panhandlers in the University area rely on the inexperience of students or present an imposing and sometimes threatening approach, virtually demanding to be given money. Professional scams are used on a regular basis to acquire funds from residents and patrons. The traditional bogus magazine and the non-existent book sale ploy are still employed; however, more creative ways in which to obtain cash are now being used in the area. Some of the more popular scam approaches that have been reported include individuals asking for a few dollars to fill the gas can they are carrying, presumably to fill their vehicle which has just run out of fuel. The individual then will pass on the gas can to another panhandler who will use the same approach on a different set of unsuspecting residents/patrons. Similarly, requesting a few dollars to purchase a can of ‘fix a flat’ is another popular scam which is used primarily on patrons of gas stations and convenience stores. This approach is revealed as a scam when a Samaritan offers a can of the requested product to give to the individual instead of cash. The desire of the ‘professional’ panhandlers is to obtain money.

However, the most disturbing trend in this area is the demand for funds through intimidation. Female students have reportedly been denied exit from their vehicles until a few dollars are provided to the panhandler.¹⁸ Panhandlers, who are often physically larger in size than their targets, use their appearance as an intimidator to appeal for cash. Persistent panhandlers can be observed daily following individuals down the street, walking beside them and incessantly asking for spare change.

This matter has become such a concern for patrons in this area that the University Business Alliance has begun a grass roots campaign to educate businesses and patrons in the area regarding methods to deter individuals from "working scams." Members of the University Business Alliance began meeting earlier in 2003 to discuss how to deter professional panhandlers, while referring those individuals in true need to the appropriate resources. The campaign is targeted at educating businesses and patrons, as well as students and residents. Equipping residents in how to deter or refer people requesting assistance is beginning to have an impact on reducing the number of reported panhandling.

This, coupled with notifying law enforcement when an individual is insistent in his/her appeals for cash, have also reduced the number of reported cases, according the members of the University Business Alliance.

Finally, this report has identified crime and the perception of crime issues specifically within the study area; however, areas just outside of the study area contribute to crime as well. The northern most portions of wards 725 and 726 that are in the Southeast Police Precinct have several ‘hot spot’ crime areas that have begun to encroach upon the southern portion of the University area. For example, located just outside of the study on the south side of Park Avenue at Highland Street is a location which is known as "shooting gallery." This is an alley which drug users frequent and drug paraphernalia can be found littered in the area at any given time.

Section III: Concerns and Issues reported by Neighborhood Associations or Representatives

When this study was first commissioned, contact was made with each of the neighborhood associations to ascertain what they felt were the pressing issues within their respective neighborhoods. The following issues were reported by residents attending neighborhood association meetings or during interviews conducted with neighborhood representatives.¹⁹

Joffre Neighborhood Association²⁰

The area is a well established neighborhood whose home values have doubled within the past decade. Issues in the area that were reported include:

• Complaints concerning the apathetic nature of the Memphis Police Department call takers and the slow response of MPD units, especially when an incident is reported while in progress. For example, when a resident called police about a theft in progress, Memphis Police officers did not respond in time to prevent the theft and when they did respond, there were five police units; the response was characterized as too much, too late. The residents in the area believe that officers are not responsive to their concerns.

• In 2002, residents were informed that a "zero tolerance" approach would be taken to employ the Broken Windows Theory;²¹ however, it seems that no evidence of stricter enforcement is present in this area at this time. Stricter enforcement and police presence in other neighborhoods have seemed to displace problem individuals into this neighborhood. Residents have also complained that the noise ordinance is not enforced.

• Community Policing Needs – Fall Fest and 4^th of July are annual events held in this neighborhood. Although the MPD is invited, they allegedly have not participated in three years. This is an excellent opportunity that local law enforcement is missing to meet the residents of the neighborhood and to educate themselves as to the local issues and concerns.

• Motor Vehicle Traffic – Through traffic is an issue in this neighborhood, especially on Holmes and Reese. Speed bumps have been placed on many of the streets that dissuade traffic from other areas and direct the majority of traffic onto Holmes and Reese. Residents would like to see streets blocked by landscaping that divert, or at least encourage through traffic to use main thoroughfares.

• Pedestrian Traffic – Residents in this area were also concerned about the increasing number of pedestrians in the neighborhood. This seems to be primarily from the students at East High school and the 24 hour businesses in the area (Walgreen’s, Taco Bell, convenience stores, etc.).

• Crime – Theft from vehicles is occurring in this area between 10:00 pm and 4:00 am. Vehicle windows are broken and loose change, compact disks (CD’s) and any other visible valuables are removed. Vehicles that are targeted normally have valuables visible through windows and many vehicles are left unsecured. There have also been increased thefts from outside buildings and storage sheds where tools are targeted for theft.

• Problem Properties – Some businesses in the area have not maintained the appearance of their property which seems to attract crime. Particularly, the Walgreen’s store at Poplar was cited as failing to maintain landscaping and constantly has trash littering the area. Also cited as being unkempt, was the oil change business on Poplar at Alexander. Some homes in the area of Marin were cited as in need of cosmetic improvements.

• Drugs – Residents reported that, several years ago, a drug house was identified in the area. Residents report sporadic drug issues, although no major drug houses are apparent to residents in the area at this time.

• Some residents support a gated community concept. "We are small fish in a circle of sharks."²² Residents believe that crime is coming into their area from north of Walnut Grove and east of Highland.

Messick Buntyn Neighborhood Association²³

The residents in this neighborhood believe that the area has deteriorated in recent years, primarily due to the number of rental properties in the area.

• The primary concern in this neighborhood seems to be apathy and a lack of interest or involvement from the majority of residents. There are a high number of rental properties in the area and by virtue of this fact, residents may not have a vested interest in becoming involved in the neighborhood or making improvements within their community.

• Burglaries and thefts seem to be the crime most often reported in this area. Regardless of the time of day or night, any property left outside and unsecured is at high risk for theft.

• The presence of gangs and gang activity is evident in and around the neighborhood.

• Residents report a high transient population and the presence of panhandlers at virtually every gas station or convenience store. Con and scam artists often approach residents with bogus magazine sales, request for money, etc.

• The neighborhood has a great many residents who are senior citizens that have lived in the area for many years. The majority of the residents are of lower socio-economic status.

• There are a number of students renting property in this area. Residents that park vehicles on the grass present an unsightly appearance to the neighborhood.

• Vandalism to homes in the vicinity has been occurring, which may be youth or gang related.

• Speeding takes place regularly in the vicinity of Spottswood and Douglas. The violators appear to be residents in the neighborhood, rather than students or travelers passing through the area.

• At various times, the Memphis Police Department will provide patrol saturation in the area, which is positive; however, the lack of consistency allows the conditions to return. Residents believe feel that law enforcement seems to be present in other neighborhoods, and this area is feeling neglected without a positive police presence.

East Buntyn Historic²⁴

• This neighborhood did not report any significant issues of concern. Traffic seems to be the biggest problem in that drivers use this area to cut through and avoid major thoroughfares and congested areas.

• Residents have reported some thefts from vehicles and residential burglaries.

Normal Station Neighborhood Association²⁵

• This is a very active association and some of the questions which arose during a neighborhood meeting included questions about jurisdictional issues. Residents within the neighborhood are aware they are in the Central Precinct, but they also know they border other precincts. There was a concern about the MPD Central Precinct communicating sufficiently with other precincts on crime issues that are on the precinct borders.

• This association questioned the jurisdiction of the university police. At the time of this meeting, a mutual aid agreement that would allow university officers to respond to emergency calls for service, in progress calls for service and provide immediate traffic enforcement in the adjacent neighborhood areas, was in the process of approval. This proposal was met with mixed reactions from the members in attendance at the meeting. On one hand, residents were happy to have extra police presence; however, they were fearful that if the university police began responding off campus in any capacity, then the MPD would reduce or discontinue their patrols in the area. Additional concerns were raised regarding university police officers’ training and capabilities. Residents stated that they preferred the university police in a supportive role rather than in a direct response role. Attendees believed that the MPD is better trained to handle the specific calls for service.

• A question was asked about a ‘zero tolerance’ initiative that was supposed to have been occurring in the area. It was explained that the burglary initiative that began at the end of 2001 and the beginning of 2002 was sidetracked by other demands. The ‘zero tolerance’ approach was to be related to enforcing minor crimes and sending the message that no crime in the areas would be tolerated.

• Complaints of slow response or no response were made regarding MPD.

• Residents complained that abandoned homes in the area drew vandals and crime. They stated that no response occurred when the issue was reported to MPD and city code enforcement. Numerous calls must be made for the city to respond with regard to the code enforcement, such as high weeds that seemed to attract vandalism.

• Two fraternity houses attract non-college individuals that provide drugs or participate in other criminal behavior.

• Suspicious persons have been reported in the area "casing" vehicles and homes. The police were called, but there was little or no response. Dispatchers allegedly would ask the description of the suspect and then dismiss the call as profiling, rather than potential criminal activity.

• Two locations in this area have constant suspicious activity. They are suspected drug houses, and calls made to police have resulted in no apparent enforcement activity.

• Traffic is becoming more of a problem on all streets in Normal Station; specifically cited were Watson, Echles, Park, Spottswood, Goodlett and Southern. Violators disobeying red lights and little traffic enforcement by police were major sources of concern. Vehicle operators driving the speed limit are often passed by aggressive drivers.

University Business Alliance (formerly the Normal Business Alliance)²⁶

The major areas of concern reported by Business Alliance members include:

• Theft - Primary concern is theft from vehicles. "Smash and grabs" primarily yield loose change and CD’s. Vehicles that are targeted normally have valuables visible through windows.

• Homelessness and vagrants - Two churches in the area provide food to the homeless and/or transients. St Jude’s provides hot meals once a day and the Vineyard Church does so twice a week.

• Goodwill Store- Reports of homeless or transient individuals rummaging through donated items left besides the Goodwill building have been made. Apparently, after obtaining the donated items, these individuals will then attempt to sell items back to residents in the area. Additionally, individuals who are homeless have used clothing taken from the donation bins to use as bedding either at the Good Will site or at other locations.

• Panhandling - Panhandling is a major problem at the Circle K convenience store located at Southern and Highland.

• Burglary – Residents on Southern Avenue seem to be frequently targeted by burglars. Individuals will walk along Southern, observe the travel patterns of homeowners and target homes that have been left unoccupied.

• Problem Properties – The Wadlington Realtors building located on Highland is an unkempt area that draws loiterers.

• Drugs – The alley next to the US Male clothing store on Highland is a high drug use area.

• Drugs – Management at the CK’s restaurant appears to have no concern as to who enters the area and what they do in or around the business. Another business owner reported an alleged drug exchange at the rear entrance of CK’s.

• Police response - Response from police is sometimes apathetic. For example, a MPD officer in Circle K convenience store was approached by a local business owner and advised that someone had brought in a stolen bicycle. The police were called, but the owner was concerned the perpetrator would not be there when the police arrived. The officer advised the complainant that another police unit would respond and that he was on break.

University Consortium Neighborhood Association²⁷

The leadership of this area reported no significant crime issues. Some of the minor concerns that were voiced included:

• Speeding occurs on Patterson Street. The neighborhood is seeking to have speed bumps installed to slow down violators.

• Students that illegally park in and around the neighborhoods are a continuous problem. Numerous parking offenses, such as blocked driveways, vehicles parked in yards and vehicles parked facing traffic are some violations that were listed.

• There seems to be a higher percentage of rental property in the area, which results in a higher population of students renting in the area.

• A great deal of littering is occurring in the area, presumably with students as offenders.

Red Acres²⁸

Members of this neighborhood reported no major crime issues, although some concerns included:

• Increased number of burglaries that are committed during the day.

• Theft from vehicles in and around the golf course area which are allegedly being committed by individuals jogging in area.

• Concern about the University of Memphis expanding northward which would increase motor vehicle and pedestrian traffic.

• Vandalism to vehicles and mailboxes in area, presumably committed by youth.

• Residents believe that the crime issues are being committed by three sources; youth, individuals seeking to support drug/alcohol addictions and homeless individuals looking for change or items which can be sold quickly.

• Report of residents deliberately leaving vehicles parked on the street unsecured so that windows will not be broken in by thieves attempting to gain access.

• There is a concern that the University of Memphis has property that is not being maintained in accordance with code enforcement standards.

A survey was created by the University of Memphis Center for Community Criminology and Research for distribution to residents within the University District in order to ascertain their opinions on crime and the fear of crime in their area. One hundred surveys were distributed to the leadership of these associations and 33% were returned. Due to the small number of returns, a detailed statistical analysis of data cannot be accomplished. However, comments made in the open ended questions will be reported.

Almost 50% of the returned surveys were completed by residents of the Normal Station neighborhood. Almost 60% of those returned were completed by females and the majority were sent in by residents between the ages of 30-49. Almost one half of those who completed the survey had lived in the area from 1-5 years and the overwhelming majority of respondents own their home. More than 75% of the respondents had not been victims of crime, yet felt there were crime problems in the University District area.

According to the open responses to questions on the survey, traffic issues were overwhelmingly listed as the biggest problems in the area. Cited were speeding and the lack of enforcement in the residential areas against parked vehicles blocking driveways.

The use of drugs in the area was also reported as a frequent occurrence by those who completed the survey. Perceived drug houses were reported in and around the University District neighborhood.

Concerning location, Southern Avenue apartments as well as businesses located on Highland and Park Avenue were listed as areas that residents would not frequent due to crime or the fear of crime. Areas on Spottswood, Carnes and Audubon Park were reported as high crime areas as well.

Regarding businesses and revitalization, respondents claimed that businesses had moved from the area due to the high crime that is encroaching upon the southern boundaries of the University District. Some of these businesses were replaced by pawn shops, checking cashing services and businesses which provide quick cash.

Finally, the survey respondents acknowledged that problem properties and the lack of code enforcement against property in the area creates an atmosphere that attracts crime.²⁹

Although homes in need of repair can be found in the many of the neighborhoods cited in this report, the greatest numbers of problem properties was found south of Southern Avenue. The following photos were taken from areas within the University District and provide examples of problems cited by residents.

Trash and litter left in front of buildings

Example of a home in need of repair or paint

The below example is of activities which degrade the community neighborhood, alcohol
beverage containers, residents on roofs or couches on front porches

High weeds and unkempt lawns send a message of apathy and unconcern

Abandoned buildings become targeted for vandalism, loitering and more serious criminal activity

Section IV: Most Problematic Crime and Public Perception Issues

A synopsis of the major complaints from neighborhoods within the university area can be categorized into five main areas of concern:

1. Lack of police presence and adequate response – One of the most overwhelming issues when discussing crime and the fear of crime within all of the University District neighborhoods is the perceived lack of police presence and response to calls for service.

2. Traffic in and around residential areas - Residents are concerned about the increased amount of traffic caused by people driving through the area to avoid the major thoroughfares and about parking problems that are further exacerbated by students.

3. Homelessness and panhandling – These issues are cited as major nuisances and a detriment to the neighborhood. Residents in the area believe that failing to address this issue immediately and aggressively only encourages more individuals to participate in this behavior.

4. Burglary and Larceny - In reality, residential and business burglaries, as well as larcenies of and from motor vehicles, are the most significant crime issues in the area. Furthermore, the number of these occurrences is increasing in number.³⁰

5. Problem Properties – Poorly maintained buildings, homes and lots, whether vacant or inhabited, act as a magnet for drawing crime to the area.³¹ These properties, when left in disrepair, also further the perception of public disorder.

University Police Departments - Many university police departments are conducting initiatives and strategies to enhance safety on campus and some are exploring initiatives off campus, but only as it specifically involves students. Many law enforcement agencies and cities are adopting policies and ordinances in an effort to keep residential neighborhoods around universities from becoming student ghettos.³² Nationally, 61.5% of the nation’s 16.5 million undergraduates lived off campus and not with relatives in 1999-2000.³³ This figure is up from 58% in 1995-1996.

The University of Maryland Police Department is expanding its jurisdiction beyond the campus property and bolstering patrols through student dominated neighborhoods.³⁴ The report reflects a philosophy that the state university should claim more responsibility for safety and quality of life issues in neighborhoods surrounding the campus.

The University of Memphis and the Memphis Police Department have been proactive in their extension of the University Police Department’s jurisdiction off campus to handle emergency issues within the University District neighborhoods. This agreement is in the final stages of approval and should be implemented in late summer 2003.

Local Law Enforcement – As evidenced by the creation of CoActs (which stands for "COmmunity ACTion") in other localities, the Memphis Police Department seems to recognize the importance of a personal police presence within neighborhoods, as well as the uniqueness of each neighborhood. However, within the University District, there is a great deal of University owned property which is not readily identifiable to the responding law enforcement officer. If students are seen in and around an area, often times it is assumed to be university responsibility. Confusion over jurisdiction issues or assumption of responsibility due to the occupants being students, presents a lack of clear definition and consistency in law enforcement in the area.

Additionally, two CoAct units police sub-stations are located west of the University District. The purpose of the CoAct unit is to provide a community policing location within a neighborhood to work on issues specifically within that area. Currently, the MPD has 16 community policing sub-stations, two of which are located in the Central Precinct. One sub-station is located in Orange Mound and one is located in the Binghamton neighborhood. The distance between the CoAct located in the Binghamton neighborhood and the CoAct in the Orange Mound area is approximately 3 miles.³⁵ The Inspector from the Memphis Police Department Central Precinct indicates a desire to expand the CoAct units as staffing and funds are available.

Section VI: Revitalization Strategies explored by other Universities

In an effort to ascertain what other universities have done in this area, contact was made with 26 universities identified by the University of Memphis as peer universities that have similar urban or suburban environments and challenges.

Many of the universities that were contacted were performing in-depth studies of crime and the fear of crime occurring on campus. Some universities were studying the effects of crime and the fear of crime outside the university, but only as it related to students either as victims or perpetrators of crime. Only a handful of universities were actually studying crime, the fear of crime and how they affect the neighborhoods adjacent to their universities. Even fewer were specifically focusing on revitalization efforts in neighborhoods contiguous to the universities and actually becoming involved in the process of improvement. It will be the latter efforts that will be detailed further.

In many cities, universities are located in older neighborhoods. In the past, universities tended to function in a vacuum, detached from community life. While a great deal can come of these university-community partnerships, results to date generally have been inconsistent and marked by disinterest or distrust.³⁶ Too often, urban colleges and universities have grown and prospered by virtue of their academic programs, while the surrounding communities have suffered decline. It is as if the university and the neighborhoods have been on separate tracks, their future independent of one another. This, however, is changing rapidly, as many universities all over the United States are increasingly aware that their success is interwoven with the fate of the surrounding community.³⁷ Few organizations have more to offer in impacting economic development on both a local and national basis than our nation’s colleges and universities.³⁸ Universities have realized that they are increasingly important partners in urban revitalization efforts.

University involvement in addressing public issues is not a new idea. In the 1900’s, Catholic and Jesuit schools played an important role in serving the needs of the urban poor.

The issue of problem properties will be outlined in many initiatives that other universities are exploring because problem properties are "crimogenic," meaning that the presence of abandoned buildings, derelict vacant lots, dilapidated housing, and other neglected properties is associated with concentrations of crime. Problem properties may contribute to such "hotspots" in that they harbor crime (e.g. the abandoned building out of which operates an outdoor drug market), or because their neglect signals a lack of care and concern - which invites anti-social and criminal activity while driving out more legitimate activities and law-abiding residents. When neighborhood conditions signal a lack of care and concern, the metaphor of "broken windows" is used to characterize the physical neglect that can trigger crime and anti-social activity.³⁹

Time is a major factor in neighborhood revitalization; it can take many years, if not longer, to reverse neighborhood decline. The direct involvement of universities in neighborhood and community revitalization programs has increased in many areas over the past several years. Some examples of universities involved in neighborhood revitalization efforts include:

The University of Boston in Massachusetts campus has water on two sides, business and industry on one side and a housing development on the fourth side. The housing development adjacent to the campus was a very high crime area.

Police escorts occurred regularly for the safety of students, staff and faculty. Approximately 8-10 years ago, the University of Boston began revitalization efforts on the campus. Through a collaborative effort with the university and local developers, an economic development opportunity was realized. This apartment complex has been completely renovated and remodeled into high quality apartments and condominiums that have attracted different tenants, whereby crime has been greatly reduced. The university was a partner in this revitalization effort and as a result, the student population has grown and the university now enjoys an improved reputation for being a safe area for students, staff and faculty.⁴⁰

Approximately 20 years ago, Clark University in Worcester, Massachusetts, formed the University Park Partnership. This is an organization comprised of community groups, residents and business organizations, with the expressed purposes of revitalizing neighborhoods. The university refurbished abandoned and dilapidated homes and resold them to area residents.⁴¹

The University of Illinois at Chicago (UIC) has created a "Neighborhoods Initiative" to assist in community revitalization to benefit the current residents and businesses. This initiative brings together members of the university and the city with the community resources needed to address public safety issues in a proactive, integrated and lasting way. UIC has made a 10 year commitment to meeting urban needs in the metropolitan area.

Since 1996, Duke University in Durham, North Carolina, has operated the Duke-Durham Neighborhood Partnership Initiative and has improved 12 nearby neighborhoods. The university invested more than $2 million in affordable housing loan funds to promote homeownership and is involved in housing rehabilitation and new home construction.⁴²

Members of Yale University and New Haven, Connecticut, residents have been working together to design a set of initiatives directed at neighborhood revitalization. Working with the City of New Haven, Yale University has identified three primary areas of concern for action: economic development, human development and neighborhood revitalization.⁴³

The University of Pennsylvania founded the Center for Community Partnerships in 1992 to improve the internal coordination and collaboration of community service programs, university wide and to create new and effective partnerships between the university and the community.

During the 1990’s, in Milwaukee, Wisconsin, Marquette University invested more than $50 million in Campus Circle revitalization by building or renovating 350 housing units. As a result, the crime rate dropped by one half and one dozen businesses opened.⁴⁴

In 1998, the Union-Schenectady Initiative was born at the Union College in Schenectady, New York. A $10 million plan was proposed to foster homeownership and revitalize neighborhoods bordering the campus. The college’s contributions included providing $1 million annually in scholarships for children of qualified home buyers, renovating dozens of properties in the area, providing mortgage programs for college staff and community residents, developing neighborhood security programs and infrastructure improvement programs.⁴⁵

Harvard University in Cambridge, Massachusetts, created a 20/20/2000 fund, which provides $20 million in low-interest loans to non-profit organizations that build affordable housing. Harvard has also pledged grants to non-profit groups that help find solutions to the area’s affordable housing shortage.⁴⁶

This is a brief overview of what some of the universities are doing in their respective communities. Universities cannot flee from the cities in which they are located; they are a permanent part of the community, whether that is their desire or not. Being a permanent part of the community carries an obligation to interact with the city and with the surrounding neighborhoods. The common core of all these programs is an improved quality of life for the residents of the university and surrounding community. Innovative partnerships such as these must be given consideration in addressing the needs within our urban areas.

Section VII: Recommendations

The Memphis Shelby Crime Commission realizes that in some cases of the recommendations provided in this report, the onus is on others for implementation and administration (Memphis Police Department, neighborhood associations, businesses, residents, etc.).