OLD NORTH SACRAMENTO REVITALIZATION PROJECT

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OLD NORTH SACRAMENTO

REVITALIZATION PROJECT

RESTORING ACCOUNTABILITY AND BRINGING OVERDUE

JUSTICE FOR THE NEIGHBORHOOD

Summary of Project

SCANNING: The Old Sacramento Neighborhood is plagued with numerous crime, disorder,

and blight issues that turned the neighborhood into a violent drug market:

 Crime Narcotics, Gangs, Gunfire, Violence

 Blight Dilapidated Properties / Dumping

 Public Nuisances Quality of Life Issues

 Absentee Landlords Minimal Private Property Investment

 Culture of Fear Public Safety Severely Impacted

ANALYSIS: The Old Sacramento neighborhood had remained in neglected condition for

decades and had developed a region-wide reputation for being the place to purchase and

consume street drugs. The problem was reviewed using qualitative and quantitative analysis,

including crime and arrest data, input from affected business owners and PBID representatives,

input from residential owners, investors, neighborhood surveys, and review with police officers,

nuisance abatement team officers, and assigned city attorneys.

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RESPONSE: The aim of the project is to eliminate drivers of crime, restore property owner

accountability, and change the climate of fear by using an innovative three-pronged approach for

long-term sustainability and continued neighborhood improvement:

 ACCOUNTABILITY: The Justice for Neighbors team (JFN)-Nuisance Abatement

 ENFORCEMENT: Crime Suppression Unit (CSU)/Patrol Liaison Officers-Strategic

Gang/Narcotics/Firearms investigations to support legal/administrative action.

 COMMUNITY ENGAGEMENT: Implement a variety of city/state social services

and educational programs to assist residents and empower community members to take

ownership in the neighborhood for long-term sustainable change.

ASSESSMENT:

 The comfort zone for the criminal element has been severely impacted. The continued

involvement of the stakeholders is driving out undesirable elements.

 Neighborhood apathy and fear is in decline. Non-criminally involved tenants are

beginning to occupy rental housing and are participating in community meetings.

 Property owners are rehabilitating their buildings and are utilizing professional property

managers to ensure that social nuisance and building code standards are upheld.

 The strategic plan for long term sustainability has been set into motion and is resulting in

voluntary compliance and the restoration of pride of residency in the neighborhood.

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INTRODUCTION:

To understand the current state of Del Paso Heights we need to look back all the way to

the Gold Rush era. Rancho Del Paso was the largest thoroughbred horse farm in the world at

one time producing California’s first Kentucky Derby winner, Ben Ali. Rancho Del Paso was a

massive 44,000 acres ranch, north of the river and downtown Sacramento. Del Paso Blvd was

established and later became part of the Lincoln Highway; the first coast to coast road in the

United States. The Haggin Oaks Golf course was designed by same designer as Augusta

National and was played by such celebrities as Bing Crosby, Babe Ruth and Bob Hope.

How did the once flourishing land of thoroughbreds and golf courses turn into the place

your parents warned you not to go?

In 1947, the North Sacramento Freeway opened, bypassing Del Paso Blvd and acting as a

tourniquet to North Sacramento businesses. The once main thoroughfare was now hidden

under an overpass. In the 50’s and 60’s, the worst neighborhood in Sacramento was called West

End. The City of Sacramento created the Capital Mall by destroying hundreds of old homes in

West End thereby displacing the population into the slums and pushing them north to Del Paso

Heights. The City of North Sacramento was annexed by Sacramento City in 1964. North

Sacramento began to be neglected by city politicians and the infrastructure rapidly declined.

Many of these factors over time have contributed to the Old North Sacramento neighborhood

becoming the crime and poverty ridden and drug and gang infested community that exists today.

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Traditional policing along with the weed and seed tactics employed in past efforts have

not resulted in long term change in this community. The problems were compounded when

POP teams were eliminated due to department budget cuts. A more effective and less

manpower dependent approach to problem solving was necessary. The City Attorney’s office

created a multi-disciplinary nuisance abatement team called Justice for Neighbors (JFN) in 2010

to implement a legal intervention strategy to solve many of Sacramento’s crime problems.

JFN is based upon the POPLAW concept and focuses on fighting the most corrosive

social and criminal nuisances that degrade the quality of life in Sacramento. Operating under

the "broken windows" theory with strong emphasis on CPTED, the JFN goal proactively

addresses these criminal problems before they grow into more serious offenses that can lead to

urban decay in our communities. The JFN team investigates and prosecutes physical and social

nuisance actions utilizing civil, administrative, and community prosecution to hold negligent

property owners accountable for harmful conditions.

The JFN team conducted a comprehensive investigation into the Old North Sacramento

neighborhood and developed a legal intervention and “broken windows” strategy designed to

address the most prolific social nuisance code violators. Several property owners were identified

as being responsible for permitting the deplorable social conditions to thrive. JFN determined

that it would be necessary to impose civil consequences on the most egregious violators at the

epicenter of the problem. These actions were highly advertised in the community and resulted in

voluntary compliance from property owners inclined to avoid probable legal consequences.

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SCANNING

When selecting the boundaries for the project, crime stats were used to find the area with

the highest crime in the City of Sacramento. Old North Sacramento maintained the highest

number of calls for service and concentrated violent crime in the city. In the initial planning

phase, scheduled weekly meetings were held. The code name Town One was given to the

selected area. Town One is 16 blocks with 269 parcels. Of the 269 parcels 86 (31%) are

multiunit. There are approximately 820 households in the boundaries. The approximate

population is 2,200 people. (Attachment A)

The multiunit parcels in Town One are inhabited by a highly transitory population. Rental

properties account for the majority of the Town One residences. There are many small (4-8 unit)

apartment complexes. Most of the complexes are owned by absentee landlords who are only

concerned with profit and are reluctant to make investments to improve the conditions. Tenants

are forced to live in substandard and often hazardous buildings. Several properties located at the

Traction/Bowles intersection are the most degraded. Many tenants are criminally involved or fail

to report the conditions out of fear of being evicted. There are multiple shootings and

homicides on record here.

The neighborhood began to spiral in the early 90’s when the crack cocaine epidemic hit

Sacramento. The deteriorating physical conditions and a minimal response to lower amounts of

disorder in the community sent the message to criminals that their incivilities and their

engagement in low level crime (drug usage, loitering, drunkenness, trash, graffiti, and abandoned

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cars) would not be taken seriously, which lead to a decrease in informal social controls in the

neighborhood. Small amounts of disorder, if not reacted to, frequently set the stage for larger

amounts of disorder. When these nuisance conditions went unaddressed, fear of crime

increased, along with a fear of reporting crime. This downward spiral of decay resulted in a

permanent criminal culture residency and the invitation of violent crime onto the neighborhood.

Many of the residents are part of the entrenched criminal culture. The streets are used for

illegal dumping of trash, furniture, campers, boats etc. Drug dealers are blatant and fearless. The

area is a well-known location to buy and consume illegal narcotics. There is little sense of

established community and an existing fear of working with police. The landlords maintain

substandard properties and have not been held accountable for the nuisance conditions.

Several of the properties in Town One were identified as a high priority public nuisance

from City Council requiring special attention. Police management identified the area a drain on

police resources. Town One is a popular hunting ground for officers looking to make narcotics,

firearms and gang related arrests. Norteno gang members have tagged and claimed the

neighborhood over recent years.

Initial diagnosis of the problem was done using crime data. The team was able to identify

the quantity of Part 1 crimes in Town One as well as narcotic use and sales arrests. Density

maps displaying this data were important for identifying the hotspots within the project area.

The largest hot spot within Town One was Traction Ave/Bowles St. intersection.

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ANALYSIS

The initial analysis of the problem is that Town One had long been plagued by blighted

physical conditions and criminal nuisances for the past 30 years. The broken windows theory of

deteriorating social and physical conditions is clearly defined in this community. The

ghettofication due to disinvestment and crime over the years sent the message that the

authorities were not concerned about this part of the city. Town One has long suffered from a

region-wide reputation as an open drug market and no-go zone for non-criminally involved

citizens. Other factors include a high volume of police calls for violent crime; highly active drug

offenders, parolees, and gang members who felt at liberty to engage in dangerous lifestyles of

crime and neighborhood intimidation. Landlords were not being held accountable for

incompetent property management or for the blighted conditions they permitted to exist. City

budget cuts also left a problem solving approach limited to reactive law enforcement.

The Crime Analysis Unit provided comprehensive data analysis within the boundaries of

Town One. Data for UCR Part 1 offenses was analyzed for a 5 year period. CAU also looked at

the nature of the arrests, proactive enforcement, citizen complaints, and property crimes. The

JFN team walked the entire neighborhood and conducted a survey with residents, property

managers, and even criminally involved individuals. We also interviewed numerous property

owners, investors, and area business owners. Data revealed that violent crime increases in the

later hours of the day. The most serious crimes, including three homicides, were reported in the

Traction/Bowles vicinity of Town One. Many of the underlying social conditions in Town One

have to do with concentrated rental housing in improperly managed or neglected substandard

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property. The apathy on the part of owners provided criminals with a base of operation to

conduct their business. Criminal activity tends to thrive where it is permitted to exist, and where

it goes unreported. CPTED improvements on Town One properties should begin to send the

message to criminals that there is order in these properties, or that if disorder exists, there would

be an immediate corrective response to it.

The nature and extent of the crime and blight problem in Town One was clearly revealed

to us through the CFS history, crime stats, officer interviews, community meetings, council

member complaints, as well as media accounts of shootings and homicides. Crime data indicated

that planned police operations and focused enforcement only temporarily impacted crime

patterns. Violent crime occurred more frequently in the properties with the least amount of

investment or professional management.

Our interviews and surveys revealed that property owners and investors in Town One

had been conditioned to believe over the years that they would not be held accountable for the

substandard conditions of their rental properties. Several responsible owners indicated that they

thought the City did not care about Town One or would take any action against problem

neighbors if they complained. Patrol officers reported that many of the active drug dealers or

drug users they arrested indicated that Town One was the place to go to buy drugs or to sell

stolen property with little chance of getting caught. Many also explained that the neighborhood

is dangerous, with a number of offenders known to carry weapons. A multitude of victims of

crime were also reported to be involved in some form of criminal activity at the time of their

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victimization. Much of the gunfire in Town One, according to police reports, resulted from

disagreements or other hostilities between gang members and drug dealers.

Over the past few years, the crime problem in Town One has been compounded by

changes in California laws, specifically Proposition 47, which decriminalized possession of

felony drugs and theft crimes, and AB109 Public Safety Realignment Bill, which mandated an

early release of a large number of so called non-violent offenders back into the community.

When criminals are arrested for Prop 47 offenses, they are being released on citation back into

the same environment without incarceration.

Neighborhood surveys also revealed that many of the rental properties are mismanaged

and have substandard building conditions and criminally active tenants. The effort to arrest

away problems in the community was unsuccessful. Although weed and seed attempts have

been tried in the past, and were well-received by the community, they had limited success and

did not impact a long-term strategy. Our analysis determined that the crime problem within

mismanaged substandard properties provided a base of operation for the drug dealers and gang

members. Criminals felt comfortable and gained psychological control over the neighborhood.

We found that legal intervention would be necessary to regain control over property. The

epicenter of the drug problem—the Traction/Bowles properties—should be a first priority as a

means of sending a message to other landlords in the neighborhood that the City is invested in

holding owners civilly accountable for the conditions.

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The mismanagement of rental property, neglect of substandard conditions, apathetic

ownership, and a lack of accountability and resource investment on the part of the City, are the

underlying causes of intractable crime and disorder problems. The sole reliance upon reactive

policing over the past few years combined with the decriminalization of many California state

laws has created a perfect storm for Town One.

RESPONSE

The goals for this project are to make Town One a better overall place to live for the

residents by removing violent criminals, changing the reputation of the area, ensuring owner

accountability, improving the physical environment, and influencing a spirit of pride and

ownership within Town One. We will be able to measure these objectives by using surveys,

interviews and crime stats.

This project is unique because a multi-disciplinary process is being employed to rapidly

change social standards and force private property investment to improve living conditions. Our

analysis indicated that a heavy emphasis on civil action would be required to gain control over

property and to change the reputation of the neighborhood. The team utilized effective

resources, including traditional law enforcement tactics, legal intervention, and community based

investment.

During our analysis we discovered there is limited community participation, living

standard expectations are low, and the police are not viewed in a positive light. This was mostly

discovered while surveying community members. The information led us away from investing

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too much time into connecting with this community though social media networking. This

meant communication was going to also be a challenge.

Our experience with past failures in this neighborhood did not include using legal

intervention strategies to force compliance with the city social nuisance code. The establishment

of the JFN team made it possible for effective coordination between City departments.

Communication between outside entities and community groups was achieved by planning

weekly meetings and developing relationships.

Three primary response elements:

1. NUISANCE ABATEMENT

JFN Officers and City Attorneys, City Code Enforcement, Hazardous and Dangerous

Buildings, Fire Department Inspectors, Housing, etc.

2. STRATEGIC ENFORCEMENT

Crime Suppression Unit/Liaison Officers –Strategically enforcing laws

3. COMMUNITY ENGAGEMENT

Relationship development/Social services agencies/Outreach/Empowerment

A letter was sent to every parcel owner inviting them to a Town One kickoff meeting.

The purpose of the meeting was to introduce the revitalization project and to encourage

cooperation. A large number of property owners attended and made commitments to accept

responsibility. (Attachment C,F,G)

As a practical public safety matter and as a means of proving our ability to be successful

with our strategy, we took on the biggest venture first. The notorious Cancun Palace

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Apartments would be a challenge, but also a location where we could measure real results. After

years of crime problems and several different owners, the newest property owner was forced to

make positive changes. The location had the highest CFS every month. Repeated incidents of

gang activity, shootings, blight, and a homicide plagued this property. Both previous owners we

dealt with immediately listed the property after being notified of nuisance activity. JFN attorneys

served the latest owner with a demand letter in preparation for a public nuisance lawsuit. The

threat of legal action motivated the ownership to make a significant CPTED investment in the

property. The changes demanded screening of tenants, aggressive evictions, controlled access,

blight removal, building improvements, cameras, lighting, security, and professional on site

management.

We determined through analysis that public safety must be the first priority of the project,

and it would be necessary to target the worst locations first. The hub of the narcotics and gang

problem is the Bowles/Traction apartment buildings. These locations have experienced

numerous shootings along with a gang homicide. The lone owner was a reluctant investor and

an incompetent manager. After JFN imposed significant administrative penalties on the owner, a

complete physical renovation took place. All problem tenants were evicted during the

renovation process; our CPTED recommendations were initiated, and professional property

management took over maintaining the property.

SPD CSU was assigned as a dedicated investigative body tasked with conducting enforcement

for the project for a period of three months. CSU coordinated with patrol liaison officers and

officers assigned to the ShotSpotter team who were assigned to identify target locations. Social

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nuisance locations were prioritized based upon the criminal threat, quality of life issues, and

general blight. CSU identified the resources needed to address each location and coordinated

with JFN. CSU proactively investigated criminal activity by means of direct enforcement,

informants, UC surveillance, and search warrant service.

Norteno gangs had taken over the most difficult property impacting the area, which was also

owned by an absentee landlord. Substandard building conditions had also resulted in a fatal fire

on the property. CSU along with HIDTA conducted surveillance operations that resulted in a

search warrant and a significant seizure of narcotics and firearms. These cases provided a legal

cause of action for a public nuisance lawsuit to be filed by JFN attorneys. This legal intervention

resulted in a settlement agreement that included a complete renovation and the imposition of

compelling CPTED and business practice changes on the property.

The SPD Volunteers in Police (VIPS) unit, along with City Utilities were assigned to

address street dumping of trash and vehicles as part of a proactive clean up and maintenance

program. As part of a weekly patrol program, VIPS personnel towed abandoned vehicles,

marked vehicles for tow, and reported illegal dumping to Code Enforcement. We learned from

our analysis that visible cleanup efforts as well as proactive crime enforcement would begin to

send a message to the community that low levels of disorder would are longer tolerated,

encouraging residents to report illegal dumping, criminal activity, and to get involved in the

cleanup process.

The most challenging part of this community transformation has to do with keeping

residents of this largely rental community involved. We found that the social outreach portion is

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critical to our success. The carrot and stick involved an education process for families to steer

them toward resources so they might improve their quality of life. During our initial door to

door survey we learned that people in Town One do use social media but had no desire to

connect with the police department in this manner. We found this to be an obstacle to effective

communication. We learned that the best approach would be to physically walk the

neighborhood and engage in personal communication. The survey demonstrated that the

residents did not feel that crime in their neighborhood was above average, indicating they had

become desensitized. We learned that it would be necessary to educate the community that their

standard of living should be higher and that they should not accept the existing conditions.

We delivered an invitational flyer to every residence advertising the Town One Kickoff meeting.

We learned that our task would be more challenging when very few residents showed up to the

community meeting. A neighborhood watch meeting was later held at a location inside Town

One. The high turnout indicated that residents were slowly starting to care about their

community and wanted to improve the neighborhood. We saw this turnout as an early indicator

of the potential for long term success. A separate Town One meeting, in which there was a very

large turnout, was held with the owners of the property. Much of the ownership was motivated

by a concern about legal action being brought against them.

The social services portion of the Town One project’s main goal is to attain stakeholder

involvement and empower the community to improve the social conditions in their

neighborhood. A community event for families is scheduled for summer. It will provide an

opportunity for residents to enjoy their neighborhood park, connect with resources, develop a

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stronger sense of community, and to partner with law enforcement. This positive event will also

be an opportunity to measure the success of our program by witnessing how the residents feel

about living in the neighborhood. (Attachment H-L)

In determining our response plan, we considered past efforts that were not successful. The

component that had been missing from previous response plans was a legal intervention strategy

designed to coerce responsibility over property. The response plan involved all the following

partners: Police, City Attorney, Code enforcement, HDB, District Attorney, Parole, Probation,

Cops and Clergy, Parks, Public Works, IMPACT team, CIP, Mental Health, Local Businesses,

Habitat for humanity, local churches, Grace City, Volunteers in Policing, and various private

community groups.

ASSESSMENT

The quality of life in Town One is on the rise and response goals and objectives are being met:

 Arrests have increased / crimes are being reported / criminals removed.

 Owners are being held accountable for nuisance conditions on properties.

 Physical environment is improving; Citizens are calling in illegal dumping etc.

There was a 46% increase in citizen initiated CFS in Town One. We were able to get the

most notorious locations to make the types of investments and changes required to permanently

change nuisance issues. Legal intervention efforts as predicted have generated a ripple effect

among other problem property owners. We are now experiencing voluntary compliance and

correction. Residents and community members have expressed appreciation for our effort to

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improve the neighborhood. City Council has also reported positive feedback about the project.

(Attachment D-E)

Results have been and will continue to be measured through qualitative and quantitative

analysis including surveys, interviews, crime statistics, community meeting participation, and

visual changes.

Although revitalization effectiveness has only been measured for a few months, the degree of

positive impact is high. We anticipate continued and self-sustaining improvements in future

months. The evaluation of the project is a joint effort by team members. The information will

be combined for a complete evaluation to be revaluated on a periodic basis. We learned that a

problem of this magnitude is very manpower dependent, and it was difficult to maintain enough

staffing. We were also challenged by eroding California laws that released criminals back into our

project area, which may continue to have a negative impact. We may have experienced faster

results with additional teams geographically assigned within the project area. Criminally active

individuals are avoiding Town One, but may have been displaced to other parts of the city

where crime is increasing.

Area businesses and adjoining neighborhoods have benefited from this neighborhood

transformation project and have expressed their appreciation. Crime statistics will need to be

evaluated to determine the long term effects of the project and a maintenance plan will be

implemented. Overall, the quality of life and public safety have improved significantly. We

anticipate long term success in the neighborhood transformation. (Attachment P)

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APPENDICES:

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