Annual report of the Police Commissioner for the City of Boston

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2005 ANNUAL REPORT

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6455
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2005

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OF THE BOSTON POLICE DEPARTMENT

Police and Community

sharing responsibility
to ensure safe, secure,

and livable neighborhoods

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Cit\^ of Boston

Founded

1630

Government

Mayor/City Council

City Budget

1.92 Billion

Area

48.9Sq. Miles

Open Space

1 9.27%

Altitude (in feet above sea level)

28

Average Annual Temperature

51.6 R

Rainfall (in inches)

42.53

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Resident Population

589,141

■■■*

Daytime Population

2 Million

Annual Average Income - Household

$47,979

Organized

1854

Annual Average Income

$59,423

Sworn Officers

2,067

Police Officer Population Ratio

1 per 285 residents

Civilian Personnel

808

Public Safety Spending per Capita

$654.02

Budget

$209.6 Million

Population Density

12,166

Median Age

35

Registered Voters

272,740

Mean Years of Service

1 1

Average Median Selling Prices for Homes

$394,874

Facilities

23

Residential Property Tax per 1 K

$10.73

Patrol Vehicles

467

Commercial Property Tax per 1 K

$32.68

Specialty/Support Vehicles

77

Paved Streets (miles)

784

Motorcycles

66

Sidew/alks (miles)

1500

Water Craft

7

Parks & Recreation Facilities

541

Horses/ Ponies

12

Private/Parochial School Population

12,930

Canines

13

Public School Population

58,000

Total Calls Recorded

560,595

Per-Pupil Spending

$11,678

Foreign Languages

40

Public Schools

145

Special Events Policed

500

Charter Schools

16

Non-Public Schools

72

Pilot Schools

17

Colleges & Universities

35

Hospitals

22

Major Daily Newspapers

2

Television Outlets

9

MBTA Travelers

1.2 Million Boarding Daily

Languages Spoken in Boston Homes

140

Ethnicity in Boston

More than 1 00 Types

Mayor Thomas M. Menino

Police Commissioner Katlileen M. O'Toole

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A YEAR OF SYSTEMIC CHANGE

2005 was a year of systemic
change for the Boston Police
Department. The department built
on past efforts to enhance and
restructure units that are critical in
reducing crime. The department
also built upon the partnerships that
were formed and strengthened
during the 2004 Democratic
National Convention, and leveraged
those partnerships to help increase
our ability to prevent and investigate
crime.

Boston in 2005 remained one of
the nation's safest cities. Overall
chme fell 7 percent. However, the
department was challenged in 2005
by a rise in violent crime, particularly
in the number of homicides. There
were 73 homicides in the city of
Boston, a 20% increase from the
year before, and the highest number
in ten years. The number of non-
fatal shootings also increased in
2005, up 28% from 2004. Both of
these increased percentages reflect
the availability of illegal firearms on
the streets of Boston.

In order to control the increases in
violence, the department worked
closely with community and law
enforcement partners throughout
2005. The department continued
its emphasis on partnerships and a
balanced, coordinated approach of
prevention, intervention, and en-
forcement initiatives. Utilizing the
new Boston Regional Intelligence
Center (BRIC), the department be-
gan focusing on the intersection of
high impact activities, locations, and
people. It is the department's belief
that a small percentage of criminals
account for a majority of the crimes
that are committed. A majority of
those crimes occur in a limited num-
ber of areas of the city, often only
within a few square blocks. Careful
analysis and focused attention in
these high-risk areas was a logical
strategy

In order to specifically confront
the problem of illegal guns on city
streets, the department developed
tactical and strategic initiatives.
Leading these initiatives were the
front line officers and investigators
of the department, who continued
to work tirelessly and with great de-
termination. Officers worked harder
than ever in 2005 making a record
number of gun arrests - 754, an in-
crease of 39% from 2004. Officers
also seized 797 firearms, a 35%
increase from the previous year in
which 592 firearms were recovered.

2005 saw the lowest number of
motor vehicle accidents, pedestrian
accidents, and fatalities in over 10
years. Prior to 1 998, the city of
Boston averaged over 1 4,000 motor
vehicle accidents, 1,000 pedestrian
accidents and 25 fatalities a year.
The numbers for 2005 were 1 0,786
motor vehicle accidents, (down from
1 1 ,037 in 2004), 664 pedestrian
accidents (down from 801 in 2004)
and 7 fatalities (8 in 2004). The
department credits these improve-
ments to increased enforcement
during a number of traffic safety
initiatives.

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In 2005 the Department remained
focused on four main priorities, first
identified in 2004:

1. Reducing and preventing
crime and violence.

2. Securing the homeland,
one neighborhood at a time.

3. Enhancing public trust

and department accountability.

4. Valuing and respecting
Department personnel.

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2005 was the year we buiit upon those
pnorities by engaging in a series of
deliberate systemic changes and the
launching of several initiatives designed
to further improve our ability to ensure
that Boston remained a safe city to live
and work.

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Boston was challenged in 2005 by violent crimes, including homicide, in neighborhoods already
affected by serious crime. The department resolved to face these challenges by implementing
innovative, systemic changes in the deployment of resources at the district and unit level. A
collaborative approach included the support of specialized units and teams and district personnel to
complement their efforts. Examples include the deployment of a tactical bicycle unit, the formation
of a Firearms Investigation Center, and a series of multi-agency operations targeting specific high
crime areas.

Establishment of the Tactical Bicycle Unit

In the spring of 2005, the department established a Tac-
tical Bicycle Unit (TBU) within the Bureau of Special
Operations. The TBU is responsible for citywide patrol
and is called upon to supplement the district patrol force.
The unit also provides additional support at special
events. A distinct advantage of the TBU is that it can
respond quickly and quietly with more maneuverability
than a police patrol car in typically inaccessible areas
such as sidewalks, alleys, and trails. In 2005, the TBU
was deployed as a Mobile Field Force during multiple
protest/peace events, rallies, marches and crowd control
situations. The TBU is a great asset to the department in
terms of economy, efficiency and effectiveness that the
public perceives as a positive impact on the community.

Firearms Investigation Center

In November 2005, the Boston Police and the federal
Bureau of Alcohol, Tobacco, Firearms and Explosives
(ATFE) launched a new multi-agency Firearms Investiga-
tion Center (FIC) at Boston Police Headquarters. The
FIC includes 1 0 ATFE special agents working full time
with BPD detectives assigned to the Special Investiga-
tions Unit(SIU).

The FIC's mission is to aggressively pursue the criminals
who buy and sell illegal firearms, both in Boston, Mas-
sachusetts, and other states. By merging the expertise
of ATFE agents, the street-level knowledge of BPD
investigators, and culling information from BPD and
ATFE databases, the department significantly enhanced
its ability to prevent the flow of illegal guns to the streets
of Boston.

This change in tactics came about because the illegal
gun market of 2005 differs vastly from that of the
1 990's. During the 90's, BPD personnel saw a glut of
brand new firearms that were diverted to Boston soon
after they were purchased at a retail location - often
in the 1-95 states of Florida, Georgia, Virginia, North
Carolina, and South Carolina. The department's ability to
recover these illegal firearms and track offenders eventu-
ally helped to slow the smuggling of guns into the area.

This type of gun trafficking soon lessened and officers
on the street began to recover older firearms - guns
more than 7 years removed from the point at which they
were purchased. Intelligence indicated that these guns
(so-called community guns) were shared among violent
offenders and were used in multiple incidents. Tracking
the origins of these guns posed a more difficult dilemma
for BPD investigators. The department anticipates that
the formation of the FIC will provide the outlet to over-
come this new challenge through intensified, collabora-
tive, investigative focus.

The FIC concentrates on four main priorities to
accomplish its mission:

1 ) The immediate and extensive debriefing of anyone
arrested with an illegal firearm

2) The tracking of all recovered firearms, using various
ATFE systems

3) Information sharing, ensuring that the ATFE has
direct access to BPD units such as Ballistics,
Licensing, and to department reports

4) Engaging in proactive investigations, making
undercover purchases of illegal firearms, securing
search warrants, and recovering contraband

A SERIES OF MULTI-AGENCY OPERATIONS TARGETING SPECIFIC HOT SPOT AREAS

In 2005 the BPD engaged in a number of large-scale enforcement operations
within Boston's neighborhoods. These enforcement efforts typically involved
BPD districts and bureaus collaborating with other law enforcement and city
agencies in a series of saturated targeting tactics. Using intelligence analysis
provided by the BRIC, personnel directed their efforts on specific neighbor-
hood "hot spots" plagued by chronic violence and/or quality of life violations.
Among the operations:

Operation Home Safe

Boston Police, Transit Police, and Mayor Menino's Office
of Neighborhood Services worked together to address
public safety concerns and quality of life issues in several
neighborhoods throughout the city The team focused on
prostitution, after-hours parties, drugs, gangs, firearms,
and wanted persons. Home Safe called upon the BPD
to employ high visibility and saturation patrols with many
specialized units including the Bicycle Unit, the Mounted
Patrol, the Drug Unit, the Licensing Unit and the Youth
Violence Strike Force. While the BPD targeted the resi-
dential and commercial areas of the neighborhoods, the
Transit Police conducted safety checks on MBTA buses
traveling through the area.

At the conclusion of the enforcement stage of the
operation, the Mayor's Office of Neighborhood Services
coordinated with other city agencies to address issues
such as street cleaning, street light repair, and tree and
brush removal in the affected neighborhood.

Operation Red Zone

Designed to specifically address firearm violence in the
city Operation Red Zone relies on the BRIC to identify
particular geographical city neighborhoods/blocks con-
sidered "Red Zones," because of their incidence of vio-
lent crime. Ten of the most violent areas in the city were
identified and became the focus of "Red Zone Teams."
The teams consist of department personnel, federal law
enforcement agencies, community partners, faith-based
partners, business partners and academic partners.

Operation Criss-Cross

This operation originated in the East Boston police dis-
trict (A-7). The district commander assigned patrols to
target high crime and/or problem-plagued areas within
the district for 35-40 minutes during the regular tour of
duty Officers engaged in zero tolerance enforcement
operations. Officers worked in cooperation with Inspec-
tional Services Department code enforcement officers to
address quality of life issues.

Operation Hydra

This operation focused on the Chinatown, Theater
District of Area A-1 to address drug and prostitution
activity through a series of high visibility and saturation
deployments. Faced with a transitory offender popula-
tion, operation planners concentrated on product demand
rather than supply BPD personnel targeted offenders
coming into the area from outside neighborhoods, cities,
and towns who sought to buy drugs or solicit prostitutes.
Operation Hydra also targeted quality of life issues such
as vandalism, traffic/parking offenses, loitering, and litter-
ing and more serious offenses such as drug distribution,
robbery, and assault.

Operation Silent Night

Operation Rolling Thunder

Another operation in which the department used high
visibility and saturation to quell neighborhood crime,
Operation Rolling Thunder deployed one patrol car from

each of the 1 1 police districts and merged them into a
Mobile Field Force that spent one to two hours at speci-
fied locations. These personnel coordinated with the
Transit Police and other agencies to address all levels of
criminal activity in high crime areas.

Operation Rolling Thunder rotated through each of the
city's 1 1 police disthcts, or on a prioritized basis as de-
termined by the BRIG analysis of emerging crime trends.
MBTA Transit Police assigned additional uniformed offi-
cers to patrol buses and rapid transit stops within the af-
fected districts. Resources from both agencies provided
area residents with a malleable presence that served as
an effective deterrent to crime.

Rolling Thunder evolved from Operations Hydra and
Criss Cross and enlists the support of the District
Attorney's Office and the District Courts for prosecution
of offenders.

Operation B Smart

The Boston Police Department was a major participant
in Operation B-Smart (Boston's Strategic Multi-Agency
Response Teams), a comprehensive, community-based
crime prevention and neighborhood services initiative
aimed at providing security to neighborhoods that have
been most impacted by violence. Launched in 2005,
"B-Smart" was an initiative developed to realize Mayor
Thomas Menino's vision that all of the city's youth and
families will live in safe neighborhoods and in communi-
ties that are devoted to the personal, educational, and
economic well being of its residents. B Smart represents
a partnership between the Boston Police Department,
the Office of Human Services and the Office of Neigh-
borhood Services. B-SMART operates as a complement
to law enforcement by bhnging city and social services
where they are needed, thereby improving the quality of
life and working towards community stabilization.

Operation Silent Night was a three-day warrant sweep
that targeted domestic violence offenders. The sweeps
took place during the Christmas holiday season. In
2005, the 5th annual Operation Silent Night helped
ensure a safe holiday for Boston families as 25 domestic
violence offenders were arrested. Silent Night began
within the Dorchester neighborhood, but was extended
citywide in 2005 to mark the advent of the recently
centralized Domestic Violence Unit, located at the new
Family Justice Center of Boston. Members of the Youth
Violence Strike Force and detectives from the depart-
ment's Family Justice Center partnered with probation
officers from all Boston district courts. Also participat-
ing in the 2005 operation were officers from Brockton,
Brookline, and Quincy

Operation Cloak and Dagger

Operation Cloak and Dagger was a District B-3 (Mat-
tapan) initiative that used creative crime analysis to ad-
dress trends throughout the neighborhood. This strate-
gic plan and operation was a 2005 Herman Goldstein
Problem Oriented Policing Finalist. Cloak and Dagger
utilized the Youth and Police in Partnership Program to
effectively address issues involving young people at risk.
The operation used unmarked vehicles and a large num-
ber of undercover officers on patrol. Undercover officers
targeted individuals with outstanding arrest warrants in
a strategy named, "Pick Off." With intelligence gathered
throughout the police district, officers targeted firearm
related incidents and other crimes by focusing on stolen
motor vehicles. Another part of the plan, "Party Time,"
targeted after-hours parties to address firearm violence
that took place between 2:00 AM and 6:00 AM. Officers
also stepped up traffic enforcement in "Target Tango,"
increasing police presence in the neighborhoods. Many
of the traffic stops led to the seizure of illegal firearms
and other contraband.

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Boston Regional Intelligence Center

In 2005, the Boston Police Departnnent unveiled the
Boston Regional Intelligence Center (BRIC). The BRIC
is a tirst of its kind local law enforcement resource
dedicated to the collection, evaluation, analysis, and dis-
semination of information about individuals and groups
involved in chminal activity, especially street and firearm
violence and terrorism.

The BRIC was developed as a result of the department's
experience during the successful 2004 Democratic
National Convention. Law enforcement officers from
local, state and federal agencies worked side by side
to collect and analyze intelligence helpful to convention
operations. The collaborative effort revealed the value
of information sharing in any anti-crime or homeland
security endeavor.

The BRIC was conceived as a way to further integrate
the intelligence capabilities of Boston, local, state, and
federal law enforcement partners and represents a stra-
tegic overhaul to the department's traditional intelligence
operation. Civilian crime analysts are now embedded
with intelligence investigators and they jointly identify
analyze, and disseminate patterns and other relevant
data. This significantly enhanced the department's ability
to respond to emerging crime trends.

The BRIC focuses on the intersection of high impact
criminal activities, locations, and people. This includes a
daily review of information from the previous 24 hours
by civilian crime analysts and intelligence detectives who
provide BPD personnel with vital, "real time" analytical
data pertaining to crimes, crime trends, and the people
perpetrating crimes. This data is also provided to the
department's leadership to support specific operational
objectives.

The BRIC also collaborates with other agencies such as
the MA "Fusion Center" and the Boston FBI Field Intel-
ligence Office. In addition, the BRIC publishes weekly
updated crime statistics. BRIC makes these statistics
routinely available to the public via the city of Boston
website and the BPDNews.com blog.

Within months of its launch, BRIC membership expand-
ed. Full or part time participants include representatives
from other law enforcement agencies, including the MA
State Police, the MBTA Transit Police, the MA Depart-
ment of Correction, the Suffolk County Sheriff's Office
and the Brookline and Cambridge Police Departments.
Also included is a representative from the private sector
who sen/es as a liaison between law enforcement and
the business community

10

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Earning and maintaining the public trust requires that the department
remain committed to transparency, accountability, and diversity In 2005,
the department implemented several steps to fulfill this commitment.

Diversity

Diversity lends itself as one of the city's great strengths.
As Boston becomes more ethnically and racially diverse,
it is imperative that the department reflects that diversity
In 2005, the BPD achieved the highest level of diversity
among its personnel in department history

For nearly 30 years, the BPD has been guided by a
court-ordered consent decree that mandated a worl<-
force that clearly reflects the percentage of Boston's
Blacl< and Hispanic population. The decree remained in
full force and effect until November 23, 2004. By that
time, the BPD's Black and Hispanic w/orl<force made up
34.5% of the entire department. The city's population
stood at 38%.

In an effort to ensure the continued diversity of the de-
partment. Police Commissioner Kathleen O'Toole utilized
a Civil Service Special Certification option for recruit
officer candidates. This allowed the department to give
preference to individuals with proficiency in Spanish,
Cape Verdean, Haitian-Creole, and Vietnamese. The
department also launched a campaign to encourage
individuals of all races and ethnicities who resided in the
city to tal<e competitive police examinations.

As of December 31, 2005, the department reached its
highest level of diversity in its history. Nearly 36% of
the entire department workforce was now made up of
African-American, Hispanic, and Asian officers.

11

Investigative Excellence

In 2005, the department continued its commitment to
improving investigative techniques and practices. After
implementing the recommendations of the 2004 Task
Force on Eyewitness Evidence, the department issued
new/ policies on how investigators conduct photo and live
lineups, and interrogations. Efforts continue to accredit
the latent print and ballistics units of the department.

The main purpose of the Tasl< Force on Eyewitness
Evidence was to improve the quality of investigations and
prosecutions, and prevent wrongful convictions. Homi-
cide investigations are among the most complicated and
must be conducted in a thorough and methodical way
Justice will only be served if a homicide investigation
identifies the correct perpetrator(s) and that perpetrator
is properly convicted. Boston Police Homicide inves-
tigators and Suffolk County prosecutors continued to
present high quality cases in 2005. More than 90% of
homicide defendants were convicted after trial.

Launch of BPDNews.com

In November 2005, the department launched BPDNews.
com (http://www.bpdnews.com), a first-of-its-kind police
"weblog." The new website allows the department to
provide direct, unfiltered communication with members of
the public. BPDNews.com is updated daily and is admin-
istered by the personnel at the Office of Media Relations,
the BRIC, and the Office of the Police Commissioner.

BPDNews.com provides up to the minute news releases,
crime advisories, event notifications, preliminary statistics,
and other information. The website is also used to post
press releases, corrections and responses to published
media reports, full transcripts of interviews and
correspondence between the department and the media,
missing person information and updates to high profile
incidents and events.

BPDNews.com does not replace the official Boston
Police Department website (http://www.cityofboston.
gov/police). That site provides detailed, biographical
information about the department, including directories
of neighborhood stations, reference documents, contact
lists, and official crime statistics.

BPDNews.com is a great example of how the depart-
ment is exploring new ways to communicate directly with
the public. Since the launch of BPDNews.com last
November, other police departments have contacted
BPD and asked for help in establishing their own blog.

12

Figure One: Violent Crime 1 986-2005

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1 5,000 r

12,000 -

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Crime/ statistics

Figures 1 and 2 reflect the down-
ward trend of violent and part one
crime within the City of Boston over
the last 20 years. Part one crime
includes homicide, rape, robbery,
aggravated assault, burglary,
larceny, and auto theft.

Figure Two: Part One Crinne 1986-2005

20 Year Average: 36,384

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14

Figure Three: Part One Comparison 2004-2005

Crime Types

2004

2005

Change

Homicide

61

73

20%

Rape*

269

268

0%

Robbery*

2,428

2,649

9%

Aggravated Assault

4,159

4,489

8%

Burglary*

4,545

4,531

0%

Larceny*

17,526

15,957

-9%

Vehicle Theft*

5,545

4,717

-15%

Total Part 1

34,533

32,684

-5%

Figure 3 reflects the 5% decrease
of part one crime when comparing
2005 and 2004. Figure 4 repre-
sents the trends in the occurrence
of homicide, from the highs of the
early 90's and the gradual decrease
at the end of the decade. As 2000
approached, the incidence of homi-
cide increased and the department
saw this increase continue in 2005.

"Includes Attempts

200 r

150 -

100-

Figure Four: Honnicide 1986-2005

20 Year Average: 51

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15

Internal Affairs Investigative Process

After researching a complaint against an officer, the
IAD investigator prepares a report and submits it with
his/her recommendation to the IAD Team Leader. After
further review the reports are forwarded through the
chain-of-command to the Chief of the Bureau of Internal
Investigations (B.I.I.). After the Chief of B.I.I, reviews and
accepts the reports, the completed report with a recom-
mended finding is forwarded to the Legal Advisor for the
Boston Police Department, and ultimately to the Police
Commissioner.

There could be multiple allegations within one case, with
varied dispositions. The hierarchy for how a decision or
finding is categorized is;

Sustained:

Sufficient evidence supports the complainant's allega-
tions and personnel are subject to disciplinary action.
This finding may reflect a need for some action.

Not Sustained:

Investigation failed to prove or disprove the allegations.

The weakest finding, as it reflects the inability to prove or

disprove.

Unfounded:

Investigation reveals action complained of did not occur.

Exonerated:

Action complained of did occur - however, action was
reasonable, proper and legal. May reflect a need for
training or a change/creation of a policy

If a citizen is not satisfied with the investigative process,
he/she may make an appeal to the Community Appeals
Board.

Allegations Against Department Personnel - 2005

1% Self Identification (5)

1% Details/ Overtime (7)

3% Alcohol & Sustance Abuse (12)

3% Duties & Responsibilities (15)

4% Directives & Orders (1 9)

5% Untruthfulness (23)

5% Attendance/Reporting for Duty (24)

7% Miscellaneous Rules Violation (35)

7% Conformance to Laws (37)

1 0% .... Excessive Force (49)

13% ....Conduct Unbecoming (52)

16% ....Negligence/Abuse of Discretion (78)

1 7% .... Respectful Treatment (84)

16

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250 r
200 -
150
100
50
0

Dispositions Of
Individual Allegations
Against BPD Personnel
2005

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Sustained | Unfounded | Pending

Not Sustained Exonerated

350 -
300 -
250
200
150
100
50
0

IAD Complaints 2001 - 2005
Sworn

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Civilian

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2001 2002 2003 2004 2005 2001 2002 2003 2004 2005

17

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Law Enforcement Memorial Dedication

Ideas for Change Awards

In 2005, the department held its first "Ideas for Change"
Award Program. Conceived by the Commissioner's
Advisory Committee, the program was a competition
open to all department employees who had innovative
ideas to improve the efficiency and operation of the
department. The Advisory Committee consisted of rank
and file sworn and civilian personnel. Candidates for
the award submitted their idea in writing to the Advisory
Committee for consideration and a final list of nominees
was presented to the Police Commissioner.

Candidates submitted 86 ideas for consideration by the
award program committee and 1 2 were selected as
winners in 2005. Six department personnel received
honorable mention. The award winning ideas were
presented to the appropriate police bureaus for imple-
mentation.

On Monday October 3, 2005, the department unveiled
the Law Enforcement Memorial at Boston Police Head-
quarters. This beautiful memorial honors all Boston
Police Officers, from the first watchmen in 1 854 to
police officers of the 2 1 st century

The Memorial is the culmination of a 10-year-long
project created and organized by the Boston Police
Relief Association and chaired by Captain Robert
Flaherty and was funded by the contributions of
department employees, sworn and civilian.

The memorial is set upon a granite plaza. On the
memohal itself is a sculptural relief that depicts the
history of the department and a stainless steel Boston
Police badge. In front and to the right of the memorial is
a sculpture of an eternal flame, a bright blue glow
reflecting throughout the site, a symbol of the depart-
ment's perpetual commitment to serve the community

At the dedication ceremony Police Commissioner O'Toole
read the following quote attributed in 1937 to Boston
Police Captain Thomas S. J. Kavanaugh:

"The calling of a policeman is a profession - a very
useful and responsible one - with duties, tasks and
obligations so numerous and of such importance that
no young man should ever try to become an officer
unless he is ready to meet these obligations and has
a special aptitude or vocation for the position."

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2005 ORGANIZATIONAL CHART

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Office of the

Police Commissioner

Office of

Labor

Relations

Office of

Administrative

Hearings

Office of the

Legal

Advisor

Office of
Communications

Office of

Media
Relations

Office of
Multi-
Media

Family

Assistance

Unit

i

Bureau of

Investigative

Services

X

Bureau of

Field
Services

X

Bureau of
Administration
& Technology

Bureau of

Internal

Investigations

Bureau of

Professional

Development

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