Building and Crossing Bridges Refugees and Law Enforcement Working … · 2005-02-11 · variety of crime prevention and community-building subjects. NCPC offers training, technical

Building and Crossing BridgesRefugees and LawEnforcement Working Together

Building and Crossing BridgesRefugees and Law Enforcement

Working Together

National Crime Prevention CouncilWashington, DC

This publication was developed by the National Crime Prevention Council (NCPC) through funding from theOffice of Refugee Resettlement, U.S. Department of Health and Human Services, under an InteragencyAgreement with the Bureau of Justice Assistance, Office of Justice Programs, U.S. Department of Justice.NCPC received the funding through Cooperative Funding Agreement No.89-DD-CX-K002 with the Bureau of Justice Assistance. Opinions are those of NCPC or cited sources anddo not necessarily reflect the policies or positions of the U.S. Department of Justice or the U.S. Department ofHealth and Human Services.The Bureau of Justice Assistance is a component of the Office of Justice Programs, which also includes theBureau of Justice Statistics, the National Institute of Justice, the Office of Juvenile Justice and DelinquencyPrevention, and the Office for Victims of Crime.

The National Crime Prevention Council is a private, nonprofit tax-exempt [501(c)(3)] organization whoseprincipal mission is to enable people to prevent crime and build safer, more caring communities. NCPCpublishes books, kits of camera-ready program materials, posters, and informational and policy reports on avariety of crime prevention and community-building subjects. NCPC offers training, technical assistance,and national focus for crime prevention: it acts as secretariat for the Crime Prevention Coalition, more than120 national, federal, and state organizations committed to preventing crime. It also operates demonstrationprograms and takes a major leadership role in youth crime prevention. NCPC manages the National Citizens'Crime Prevention Campaign, which includes the McGruff "Take A Bite Out Of Crime" public serviceadvertising and is substantially funded by the Bureau of Justice Assistance, Office of Justice Programs, U.S.Department of Justice.

Copyright 1994 National Crime Prevention Council

This booklet may be reproduced in whole or in part with proper attribution as long as the reproduction is fornonprofit use and not for sale or resale.

Printed in the United States of America

July 1994

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ACKNOWLEDGEMENTS

This publication is, in the formal sense, the result of a partnership effort by two federalagencies (the U.S. Departments of Justice and Health and Human Services) and a nonprofitorganization (the National Crime Prevention Council). In a very real sense, however, it isthe result of partnerships throughout the nation in the sites funded by the Office ofRefugee Resettlement (at the Department of Health and Human Services) and the networksdeveloped by local residents and law enforcement agencies at the local level.

The 16 refugee community sites listed at the end of this document built and crossed thebridges that the document describes. The dedicated involvement of dozens oforganizations and hundreds of individuals over nearly two years is at the heart of theprogram and the knowledge reflected here. These people are the real source, as you willsee, of much of the pragmatic knowledge and information that makes this document a richresource.

At the national level, Chris Gersten, former Director of Office of Refugee Resettlement(ORR), agreed to partner with the National Crime Prevention Council (NCPC) and theBureau of Justice Assistance, Office of Justice Programs (for the Department of Justice.)Lavinia Limon, current Director of ORR, has continued to support efforts to improverelationships between refugee communities and law enforcement. Lenny Glickman,assistant to both of these directors, provided invaluable support. ORR staff members BillEckhof and Ron Munia laid important groundwork in this area. At the Bureau of JusticeAssistance, Acting Director Jack Nadol has been an advocate for both the interagencypartnership and the importance of working to prevent and reduce crime in refugeecommunities.

Nancy Iris, ORR Program and Management Analyst, as Project Officer for that agencyand Donna Schulz, Project Officer for the Bureau of Justice Assistance, were instrumentalin developing not just the document but the entire program that underlies it. Theycontinue to make the Interagency Agreement a true working partnership.

At the National Crime Prevention Council, the extraordinary work of S. Jonann Wildas project manager was buttressed by the commitment of Deputy Executive Director MariaNagorski and Executive Director John A. Calhoun. Karen Williams provided invaluableadministrative support. Sarah Hay, a consultant to NCPC, wrote the document you arereading with substantive input from ORR sites and from all the other principals. Editingand production were provided by Jean O'Neil of NCPC.

All those who worked on the program and this document offer their thanks to thethousands of community members who work to welcome refugees and to the lawenforcement community that is working to build and cross bridges with these newcomersto our nation.

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Building and Crossing BridgesRefugees and Law Enforcement

Working Together

Introduction .......................................................................................................................................... 1The U.S. Refugee Resettlement Program ........................................................................................... 2How This Book Can Help ................................................................................................................. 4

A Note About Terms......................................................................................................................... 7 General Resources.. ........................................................................................................................... 8

Chapter 1. A Chapter for Everyone..................................................................................................... 9 Addressing - and Celebrating - Differences. ....................................................................................... 9 Communication - The First Barrier.. ........................................................................................... 10 Forging Mutual Trust.. .................................................................................................................... 14 Discard Those Useless Stereotypes! ................................................................................................. 16 If the Goal Is Cultural Bridge-Building, Who Should Lay the First Plank?. ............................................................................................. 16 Bridges Can't Be Built in a Day ....................................................................................................... 17 Creating a Multi-Cultural Coalition and Setting Priorities................................................................. 18 A Note About Funding.. ................................................................................................................. 22 Managing Conflicts. ........................................................................................................................ 22 Working With the Media................................................................................................................. 23 Working With Schools.................................................................................................................... 24 General Resources. .......................................................................................................................... 25

Chapter II: An Introduction to Refugees forthe Law Enforcement Community .................................................................................................... 27 Why Learn About the Cambodians, the Romanians, the Haitians, or the Laotians?. .................................................................................................... 28 Coming to America: A Refugee's Experience in a New Land........................................................................................................................... 29 Taking the Lead. ............................................................................................................................. 31 Gaining Access to Refugee Communities Informally and Formally............................................................................................................ 32 Community Relations...................................................................................................................... 34 Storefronts....................................................................................................................................... 36 Community Outreach. ..................................................................................................................... 36

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Working with Young Refugees.. ..................................................................................................... 37 Hate- or Bias-Motivated Crimes.. ............................................................................................... 38 Crime Prevention: Personal Safety, Neighborhood and Business Watch................................................................................................................... 40 Evaluating Bridge-Building and -Crossing Efforts........................................................................... 41 Successful Bridge-Crossing: A Summary of Actions Law Enforcement Can Take ...................................................................................................... 44 Resources.. ...................................................................................................................................... 45

Chapter III. An Introduction to Law Enforcementfor the Refugee Community................................................................................................................ 47

Changes in Policing in the United States.......................................................................................... 47 An Overview of the Criminal Justice System.. ................................................................................. 49 Crime Against Refugees: Avoiding Victimization............................................................................ 52 How Refugees Can Help Law Enforcement Protect Them ............................................................... 53 Joining Groups: Becoming an Involved Community Member.. ........................................................................... 54 Using Existing Systems To Educate Others. .................................................................................... 55 Successful Bridge-Crossing: A Summary of Actions Refugees Can Take.................................................................................................................... 56 Resources.. ...................................................................................................................................... 57

An Optimistic Word............................................................................................................................ 61

Helpful Lists ........................................................................................................................................ 63

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INTRODUCTION

In many U.S. communities,large and small, refugees whohave fled unsafe conditions intheir native countries and havebeen granted asylum in theUnited States are experiencingthe often difficult process ofadapting to their newenvironment among people whospeak a different language andlive by a different set of culturalstandards. These refugees, whocome from Vietnam, the formerSoviet Union, Laos, Cambodia,Romania, Ethiopia, Cuba, Iran,Haiti, Afghanistan, Poland,Albania, Iraq and othercountries, must face the dailychallenges of adjusting to newhomes, preparing their childrento enter new schools, entering acomplex world of employment,shopping for a wide range ofnew products, and integratinginto new social arenas. And thekey to meeting these challenges- two-way communication - canbe the most challenging task ofthem all.

Because the United Statesrelies on a system of laws to

maintain social order, it isimportant for refugees to learn,as quickly as possible, whatthese laws permit and prohibit intheir adopted country. Laws notonly reflect a culture's socialstructure and mores; theirviolation has direct punitiveconsequences. The U.S. legalsystem can seem complicatedand overwhelming to a newresident, who must try tounderstand specific laws as wellas the complexities of the culturethat the laws serve.

It is also important fornewcomers to learn that the lawenforcement process in theUnited States is not a nationalpolice force but a series of local,regional, and state agencies thattake seriously their obligation to" serve and protect" law-abidingresidents. Newcomers need toknow that police can teach themhow to protect themselves andtheir families from becomingvictims of crime. Many refugeescome from situations in whichthe criminal justice

The U.S. Legal system canseem complicated andoverwhelming to a newresident.

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Many refugees came fromsituations in which thecriminal justice systemoperates with tyranny,repression, and fear.

Since 1975, more than 1.6million refugees have beengranted legal asylum in thiscountry.

system operates with tyranny,repression, and fear.

Law enforcement officersand other members of thecriminal justice system can helpease this transition by workingnot only to communicate withnew settlers but also tounderstand them and thecomplexities of their nativecultures. The mere absence ofconflict in a neighborhood doesnot mean that residents ofdifferent cultures have foundharmony and a cooperativeworking relationship. Truemulti-cultural integration occurswhen various cultures reach acomfortable day-to-dayinteraction marked by respect,interest, and caring.

The U.S. Refugee ResettlementProgram

The Refugee Act of 1980created the Refugee ResettlementProgram to help refugeesachieve economic self-sufficiency as quickly aspossible after their entry into theUnited States. The domesticresettlement program is theresponsibility of the Office ofRefugee Resettlement (ORR), anoffice of the Administration forChildren and Families in theU.S. Department of Health andHuman Services. The number

of refugees admitted into theU.S. each year is determined bythe President in consultationwith Congress. In fiscal year1992, about 132,000 refugeesand people of AmericanAsianparentage (Amerasians) wereadmitted to the U.S. for resettle-ment. Since 1975, more than1.6 million refugees have beengranted legal asylum in thiscountry. According to the 1990census, America is home tonearly 20 million foreign-bornresidents - both refugees andimmigrants - the highest numberin this country's history.

Until recently, most refugeeshave come from countries inSoutheast Asia. But withpolitical upheaval in the formerSoviet Union and EasternEuropean countries, the numberof refugees from that part of theworld has rivaled those fromVietnam, Laos, and Cambodia.

When refugees arrive in theU.S., they are aided byvoluntary assistance agencies(such as the Church WorldService, the International RescueCommittee, the EpiscopalMigration Ministries, theInternational Rescue Committee,Inc., the Hebrew Immigrant AidSociety, the U.S. Catholic

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Conference, and other pri-vate and religious groups) inobtaining housing, furnishings,food, and clothing for aminimum of 30 days. Duringthis time, they learn how toaccess health care, employmentinformation, and Englishlanguage and vocationaltraining.

They may also be assisted inresettling by Mutual AssistanceAssociations (MAAs), refugeeself-help groups who understandthe needs and interests of theirrefugee countrymen. MAAsvary greatly from community tocommunity in their form and inthe types of services they offerto newly settled refugees. Thenature of services often dependson the perceived needs of thecommunity and availableresources. MAAs can provide abroad range of services fromhelping with English languageclasses to cultural orientation tojob development and placement.

If refugee men, women, andchildren are to integratesuccessfully into Americancommunities, two things musthappen: The refugees mustmake an effort to learn aboutAmerican culture, and, equallyimportant, the host communitymust welcome its new membersand become familiar with thetraditions, values, and culturalheritage they bring. Diversity ofcultures adds strength to acommunity only when thepeople involved understand,respect, and celebrate each other.

Cross-cultural education when two or more cultures gainunderstanding of each other'straditions, religious practices,social standards, family roles,ways of thinking, and behaviors is necessary to developingthe kind of harmonious,supportive community thateveryone wants. But it is notsufficient. Such learning mustbe followed by communityaction.

Community action canencompass a wide range ofspecific programs, but itsultimate goals should be toformalize community policiesand to set standards forcooperation. Communities thathave undergone successfulchange have taken actions thatinclude creating multi-culturalcoalitions, instituting schoolprograms to educate youngpeople, establishing outreachand crime prevention programs,and encouraging refugees towork as employees or volunteerswith local law enforcement.Community

Refugees must make an effortto learn about Americanculture; the host communitymust welcome its newmembers

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This book encouragespartnership with members ofother cultures.

action should be tailored to thespecific needs of bothestablished residents andnewcomers.

How This Book Can Help

This book helps the refugeeand law enforcementcommunities work together intwo ways. It encourages novicecommunity activists and lawenforcement personnel to workin partnership with . members ofother cultures and describes thebenefits of doing so. And itleads seasoned multi-culturalactivists, already familiar withthe advantages of diversity,toward programs that willenhance action in theircommunities.

This book seeks to increaseunderstanding and promotecooperation between membersof refugee communities andthose who operate the U.S.criminal justice system. It is notdesigned to "Americanize" othercultures by asking them tosubstitute American traditionsfor the rich history of their owncountries.

Rather, these chapters willhelp refugees add newknowledge and understandingto their lives in the United Statesto help them integrate moreeasily into the social, academic,

business, legal, and religious lifeof their adopted country.

Likewise, this book willhelp law enforcement personnelbetter serve and protect those intheir community who arerefugees. Members of the lawenforcement community havefound that actively reaching outto refugees, through bothinformal neighborhood contactand special programs and ser-vices, substantially improvesunderstanding. Such effortshave been successful in Boston;Lincoln, Nebraska; Seattle;Portland, Oregon; Westminster,California; Elgin, Illinois; St.Paul, Minnesota; and manyother cities.

Developing a solid two-wayrelationship between lawenforcement and the refugeecommunity is more than aluxury. Failure to do so canlead to a refugee's sense of fear,victimization, and socialisolation. For some youthfulrefugees, it can lead to orexacerbate gang involvement orother lawbreaking behavior. Itcan frustrate law enforcementofficers and other criminaljustice system personnel whoseattempts to assist refugees aresometimes rejected ormisinterpreted.

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The phrase "buildingbridges" is often used toillustrate the process of bringingculturally diverse groupstogether. It is certainlynecessary to build bridgesbetween communities, but truecultural harmony occurs whenthese bridges are crossed fromeach side. This book focuses onbridge-building and bridge-crossing.

Communities in whichrefugees and law enforcementhave established close positiveties derive a wide array ofbenefits. Refugees gain greateraccess to police and otherservices, such as youthprograms, victim assistance,parenting classes, medicalassistance programs, businessnetworking, and neighborhoodgroups. Crime decreases incommunities where lawenforcement officers helprefugees learn to protectthemselves more effectivelyagainst crime. Law enforcementofficers can more easily assistrefugees who are victims ofcrime.

This book can help thosewho work in the criminal justicesystem develop moreconstructive relations with therefugee community.Community service officers,crime prevention organizations,

local neighborhood associations,victim service providers,mediators, teachers of English asa Second Language (ESL), civicleaders, and school andcommunity-based organizationswill find this information useful.It will also be helpful to MutualAssistance Associations(MAAs), voluntary agency staff,state refugee coordinators, andothers working with refugeeresettlement.

The examples in this bookare offered by U.S. communitiesthat successfully host refugeesfrom a wide variety of cultures.In Seattle, Washington, theKhmer Community works withthe police department to presentworkshops for businesses andresidents on crime prevention.In Abbeville, Louisiana, theMigration and Refugee Servicesorganization educatesVietnamese refugees aboutreporting crimes. At St. Rita'sAsian Center in the Bronx, NewYork, Cambodian and Viet-namese staff members providecrisis intervention and victimassistance information. TheInter-cultural Mutual AssistanceAssociation of Rochester,Minnesota, has four full-timeinterpreters on staff - Lao,H'mong, Cambodian, andVietnamese - to offer education,counsel-

It is certainly necessary tobuild bridges, but truecultural harmony occurs whenthese bridges are crossed fromeach side.

U.S. communities successfullyhost refugees from a widevariety of cultures.

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ing, recreation, mediation, andemployment services.

Although many of theexamples are specific topartnerships between lawenforcement and Asian (Laotian,Cambodian, Vietnamese,H'mong) refugee communities,the principles of bridge-buildingbetween cultures apply to allcommunities and cultures. It isimportant to determine thespecific needs of individualcommunities and cultures, butthe bridge foundations areuniversal.

This book is organized intothree chapters and closes with'An Optimistic Word" about thepossibilities of the future andlists of additional resources.

• Chapter 1. A Chapter forEveryone explains howcultural differences can be achallenge and a benefit andguides culturally diversecommunity membersthrough the bridge-buildingand bridge-crossing process.

• Chapter 11. A Chapterfor Law Enforcementillustrates a refugee'sexperience in a new country,offers methods forestablishing trusting relationswith refugee communities,and explains how challenges

presented by culturaldifferences can be addressedconstructively.

• Chapter Ill. A Chapter forRefugee Organizationsreviews the principles andbasic procedures of the U.S.criminal justice system andexplains how lawenforcement can helprefugees adapt to life in theUnited States.

• An Optimistic Wordprovides a glimpse into thefuture of communities withmulti-cultural populations;and

• Helpful Lists includes siteswith active refugee-lawenforcement programs andState Refugee Coordinators,complementing the resourceslisted with each chapter.

Once community activistsand law enforcement personnelgain an understanding ofrefugee resettlement, lawenforcement and communityaccommodation, the appropriateaction is up to them. This bookprovides resources rich inexperience people and orga-nizations who act as guides tosolutions for problems manycommuni-

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ties have today. These expertswelcome inquiries and standready to share their stories.

A Note About Terms

Although specific terms willbe explained throughout thebook, we have already usedthree terms that need someclarification: refugee, lawenforcement, and program.

A refugee under U.S. lawmust meet explicit criteria.According to the law, a refugeeis someone who leaves orescapes from his or her owncountry because of a well-founded fear of persecution dueto race, religion, nationality,membership in a particular socialgroup, or political opinion.Refugees admitted to the UnitedStates may have close ties to theU.S. through prior employmentor education or through relativeswho have already settled here.Refugees differ from immi-grants, who might have chosento leave their native country toseek better economic or otheropportunities but did not leaveout of significant fear ofpersecution on the groundsnoted above.

In this book, law enforce-ment includes sworn officers, ofcourse. But others in the

criminal justice community canalso benefit from it: non-swornlaw enforcement staff; com-munity relations officers; crimeprevention officers; policedetectives and criminalinvestigators; prosecutors districtattorneys, and other legal staff;judges and other courtpersonnel; corrections, parole,and probation officers.

The programs illustrated inthis book are not meant to befinite, with defined beginningsand endings. They shouldbecome standard operatingprocedure, the way of doingbusiness, for both the refugeecommunity and law enforce-ment. The daily needs ofrefugees in the communityshould fall within the parametersof routine police services as dothe elderly, at-risk teens, andpeople with other special needs.Likewise, refugees mustconsider their new roles in theirnew neighborhoods as on-going, lifetime commitments tocommunity involvement.

This document looksspecifically at refugees, butmuch of what it describes canalso help law enforcement andimmigrants develop a positive,mutually supportiverelationship.

This document looksspecifically at refugees, but itcan also help law enforcementand immigrants develop apositive relationship.

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General ResourcesOffice of Refugee ResettlementAdministration for Children and

FamiliesU.S. Department of Health and

Human Services370 L'Enfant Promenade, SW, 6th

FloorWashington DC 20447202-401-9246

The primary federal agencyresponsible for refugee assistancein the U.S., ORR provides fundsto states for a limited period of timefor refugee medical assistancegrants, social services, economicassistance, and the development ofbasic skills and knowledgenecessary to provide for theeconomic security of the individualor family. ORR also providesfunds for community meetings thatbring together police and refugeeleaders to address local issues ofcrime.

Bureau of Justice AssistanceOffice of Justice ProgramsU.S. Department of Justice633 Indiana Avenue, NWWashington, DC 20531BJA Clearinghouse: 800-688-4252

BJA oversees and administers avariety of grants programs andother ongoing initiatives tostrengthen criminal justice at thestate and local levels. It provides

technical assistance, reports onprograms, and a variety of otherforms of help to law enforcementagencies and others working tomake communities safer. Forspecific information and materials,call the BJA Clearinghouse.

National Crime Prevention Council1700 K Street, NW, Second FloorWashington, DC 20006-3817202-466-6272

A private, non-profit organizationwhose principal mission is toenable people to prevent crime andbuild safer, more caringcommunities. NCPC publishesbooks, brochures, program kits,and other reproducible materials;operates demonstration programs;provides training on a wide rangeof topics; and offers technicalassistance and referral services.

Community Relations ServiceU.S. Department of Justice5550 Friendship BoulevardSuite 330Chevy Chase, Maryland 20815301-492-5929

A division of the U.S. JusticeDepartment that provides disputemediation to communitiesexperiencing racial or culturalstrife.

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CHAPTER IA CHAPTER FOR EVERYONE

This chapter containsinformation intended to helpboth groups refugees and lawenforcement - understand thevalue of establishing apartnership. It also highlightssome of the challenges that havebeen encountered by communi-ties with refugee populationsand suggests ways to overcomethem.

Addressing andCelebrating Differences

"Variety is the spice of life"is a phrase familiar to mostEnglish speakers. Natives ofother cultures may know similarphrases in their language, suchas the French "Vive le differ-ence! ", that celebrate the factthat our lives aren't all the same.The daily experiences ofmembers of the H'mongcommunity, Soviet Jews,Afghans, and Ethiopians, forexample, are vastly differentfrom those of most residents ofthe United States. But there aremany similarities. Members ofall cultures seek security, safetyfrom harm, the ability to raise

their children to be productiveadults, the freedom to expresstheir values and religious beliefs,and the opportunity to meettheir families' financial needs.

The United States has longbeen a haven for people fromother cultures who feel they canno longer live safely in theirown homelands. In addition,the U.S. has a proud history ofcultural diversity, a rich mixtureof backgrounds that has broughtstrength to this country. Inmany U.S. cities, anyoneobserving a public gatheringsees a variegated patchwork ofskin colors, facial features,clothing, and hair stylesrepresentative of cultures aroundthe planet.

With approximately 20million foreign-born residentsrecorded in the 1990 U.S.census, people across thecountry are revising the waysthey think about communitylife, political influence, socialassociation, and economicequality. The need to integrate

The need to integrate manycultures is becoming a criticalissue as we approach thetwenty-first century.

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Language is much more thana technical skill; it is a key toeconomic well-being.

many cultures is becoming acritical issue as we approach thetwenty-first century.

Communication The FirstBarrier

Despite the cultural varietyalready prevalent in manyAmerican cities, it is oftendifficult for a person raisedoutside the U.S. to settle into anew community. When aVietnamese refugee familysettles in Houston, Texas, forexample, they bring with them alifestyle based on accepted waysof doing things in Vietnam thatare dramatically different fromthose practiced by theirAmerican neighbors. Itprobably takes a considerableamount of time and effort forthis Vietnamese family to feelcomfortable in the grocery store,at school, in the workplace, or asmembers of communityorganizations. Initially, the mostdaunting barrier to "fitting in" isoften the inability to speak orunderstand the English lan-guage.

According to a 1993 FordFoundation study,

... it should come as nosurprise thatcommunication language stands outas the most importantfeature of interactionsamong newcomers and

established residents.Language binds andseparates. Patterns oflanguage usage oftenexpress power relations.But they also reveal indi-vidual and collectiveperceptions of thehuman experience.Language servesthroughout diversecommunities as a sourceof inter-group conflict,tension, and distance.Creating institutionalsettings for languageacquisition provides asource of sharedinterests, an opportunityfor interaction and apurpose behindcooperation.

Other cultural differencespresent daunting challenges.Members of this Vietnamesefamily will not easily understandroutine traffic laws,neighborhood safety tips, theneed for a license to catch fish,car registration procedures, orbasic legal rights, even if localofficials reach out to talk withthem. The immediate problem?The police and other civicofficials can't speak Vietnamese.

Language is much morethan a technical skill; it is a keyto economic well-being.Refugees who have

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difficulty learning English alsohave more difficulty finding ajob or, if they are able to secureemployment, functioning in theworkplace. To continue withthe example of the Vietnamesefamily in Houston, the languagebarrier could pose seriouschallenges when a helpingagency tries to assess skills andpast work experience, when apersonnel manager needs toexplain insurance forms andbenefits, or when the first pay-check shows that money hasbeen withheld for somethingcalled FICA.

Success in the workplaceoften requires employees tounderstand explicit instructionsas well as to communicateeffectively with their colleagues.For example, if the Vietnameseemployee encounters a work-related safety problem, he or sheneeds to be able to tell someoneaccurately and immediately inorder to get help.

There are nonverbal com-munication barriers betweencultures as well. Efforts tocommunicate are furtherhampered by differing styles,gestures, word connotations,and nonverbal expressions. Forexample, in some cultures apolite person does not makedirect eye contact with someone

older or in authority. InAmerica, this failure to looksomeone in the eye may beperceived as a sign of guilt ordeception. In some cultures,gesturing with the left hand isconsidered an insult. Evenwithin regions, there are impor-tant variations. When aVietnamese adult touches thehead of a child, it is a sign ofaffection. This gesture is tabooin some other Asian cultureswhere the head is consideredsacred.

In America, the regionalvariations in speech, slang, andaccent can be confusing to anewcomer trying to learnEnglish. In Louisiana, forexample, its long-standingFrench heritage has contributedto a colorful variation of Englishcalled Cajun, sometimesincomprehensible to visitors.Long-time residents of Mainealso speak in a way that maycause first-time listeners toscratch their heads in wonder.Communication problemsbetween cultures are notinsurmountable. They can beresolved with energy and time,through special language classes.Meanwhile, progress inunderstanding can be builtthrough the use of interpretersand translators.

Communication problemsbetween cultures are notinsurmountable.

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Many interpreters who failtests for certification are stillfound in courtrooms aroundthe country.

Many refugees have theopportunity to take ESL classes,either through their localresettlement agency or throughan adult education program. Anumber of communities offersuch programs free. Some ESLprograms use law enforcementmaterials on personal and homesafety as tools for learningEnglish. Law enforcementpersonnel can quickly learn keyphrases of the refugee's languageby working with bilingual rep-resentatives of the refugeecommunity, who also serve asinterpreters and translators.Translators may also beavailable from local universitygraduate schools offering lan-guage programs.

Language translation andinterpretation may seem to be asolution to communicationbarriers, but they pose seriousproblems within the context ofthe criminal justice system. Instudies of the experiences ofAsian- and other foreign-bornresidents appearing in U.S.courts, experts have found thatcourt interpreters have "thepowerful capability of changingthe intent" of the testimony ofnon-English speaking wit-nesses.2 By substituting keywords in a refugee's testimony for example, "had sex" for"sexually assaulted" the inter-

preter has presented a lin-guistically biased version of thefacts to the jury, one that candramatically affect the outcomeof the proceedings.

According to Ruth Ham-mond, an expert who hasstudied the problem ofinterpreters in the court system,courtrooms hire untrained"bilingual cooks, secretaries,college students, social workers,and insurance agents" tointerpret for witnesses anddefendants who have no realassurance that the words heardby the jury will be the "legalequivalent" of what they havestated in their own language.3

The Federal Court InterpretersAct of 1978 established the rightof non-English-speakers infederal courts to have certifiedinterpreters. However, manyinterpreters who fail tests forcertification are still found incourtrooms across the country.The system in state courts isworse. A New Jersey SupremeCourt task force study foundthat more than two-thirds ofinterpreters frequently used instate courts had no training inlaw and legal terminology, andnearly nine in ten had nointerpreting training at all.Though the consequences ofthese inadequacies are some-

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times tragic, they have theirlighter moments. One Spanishinterpreter rendered thestatement "I now pronounce youman and wife" as "Now you arehunted.”4

The role of the courtroominterpreter is to present neutralverbatim testimony. Likewise,interpreters working with policeofficers or other members of thecriminal justice system mustprovide true, accurate, andcomplete interpretation of theexact statements used by non-English-speaking victims,witnesses, or suspects. A fewstates are starting to introducehigh-standard testing for courtinterpreters, but most statescurrently conduct little or nointerpreter screening.

If language is a seriousbarrier between cultures in yourcommunity, here are some keypointers for communicatingmore effectively:

• Be patient when speakingwith someone who does notclearly understand yourlanguage. Speak slowly anddistinctly. Be willing torepeat words or phrases ifthere appears to beconfusion. Remember that

shouting never helpssomeone understand better.Be careful with your choiceof words, selecting those thatare clear, straightforward,and simple to understand.Avoid colloquialisms andslang at all costs.

• Allow extra time forinvestigating situations whenthe people involved havenot mastered English.

• Be sure that someoneserving as an interpreter ortranslator is fully qualifiedand has had experience.Interpreting under pressure isa difficult task; lack oftraining can lead to mistakes,misunderstanding, andinaccurate information.

• Be candid about your abilityto speak or understand a lan-guage. Trying to "fake it"just leads to confusion,misunderstanding, andmisspent time.

• Never assume that someoneis less intelligent just becausehe or she doesn't speak Eng-lish well.

A few states are starting tointroduce high-standardtesting for court interpreters.

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Building trust between twocultures takes two strategies:Learning and doing.

Women are often at the frontof the barrier-breakingprocess.

Forging Mutual Trust

Although the languagebarrier is serious and immediate,it can be overcome withtraining, motivation, and time.Overcoming lack of trust andunderstanding may not be asstraightforward.

Building trust betweencultures takes two strategies:learning and doing. This is notto imply that lack of trust canalways be easily remedied. Butmany communities have foundeffective ways to develop andstrengthen trust between refugeecommunities and law enforce-ment through programs thateducate both groups and thenencourage community actionthat brings them together.

Experts who have studiedthe integration of foreign-bornresidents into Americancommunities have found thatsuccess results from a bottom-up, not a top-down process. 5

People don't begin to work,plan, socialize, and cooperatewith each other because there areinstitutional policies directingthem to do so. Rather, therelationships are developed atthe individual level, face-to-face- in the neighborhood, at thegrocery store, at school, at theplayground, at the workplace.For established residents and

refugees, learning about eachother begins with everydayencounters.

Women are often at theforefront of the barrier breakingprocess. The recent FordFoundation study onimmigration documents thatwomen are generally moreactive in the community, servingas the connection betweennewcomers and establishedresidents. They are usuallymore involved in educationaland civic activities, oftenorganizing responses to localconditions. If there are concernsin the neighborhood, it is moreoften the women who gettogether to identify the problem,consider options for solutions,and contact appropriateauthorities for assistance.

The accumulated result ofthese day-to-day interactions ismutual trust.

• In Long Beach, California,the Cambodian Associationof America learns about lawenforcement and personalsafety through communityeducation workshops.

• In Elgin, Illinois, theYWCARefugee Crime PreventionProject is

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successfully providing cross-cultural awareness to a largeLaotian community. TheProject funds a bilingual Laocommunity outreach workerat the police department whooffers victim/witnessassistance, translation, anddirect police liaison with theSoutheast Asian community.This project has strength-ened mutual trust betweenrefugees who have beenvictims of crime and lawenforcement.

• In Jersey City, New Jersey,trust is growing betweenestablished residents andnewcomers from Vietnamand the former SovietUnion. The InternationalInstitute of New Jersey isplanning to hire a bilingualcoordinator and establish acrime watch group. Thegroup also will install atelephone line providinginformation in English,Vietnamese, and Russianabout crime reportingprocedures.

Experience shows that whengroups come together in ashared task usually toimprove conditions in a

community they developstrong ties. The FordFoundation reports on theaccommodation betweennewcomers and establishedresidents in the U.S.:

[These] groups are notsearching consciously forcross-cultural means toimprove an abstract sense of"quality of life." Rather, inthese situations, they arestruggling together over aloss of control in the face ofdramatic changes in theirstandard of living. Sharedactivities reduce tension andcompetition and build bondsof trust among groups Otheractivities, like sports andrecreational clubs, alsoprovide opportunity forpositive interaction amonggroups. When given theopportunity, occasion, andshared project, newcomersand established residentsshow a willingness to worktogether.6

When law enforcement andother services providers workwith refugee families in waysthat meet their needs as well asrespect their

Experience shows that whengroups come together in ashared task, they developstrong ties.

16

Stereotypes can be modified orerased through personalcontact and education.

culture, refugees become moretrusting. As refugees learn totrust law enforcement, policepersonnel find that their abilityto work closely and construc-tively with members of refugeecommunities increases. Thebenefits to each community aresubstantial.

Discard Those UselessStereotypes!

A third barrier to harmo-nious relations among manycultures deserves seriousattention because it can hamperunderstanding. What's wrongwith these statements?

All Russians wear thick furhats.

All Asian kids join gangs.

All Americans have jobs andare rich.

The only thing policeofficers do is chasecriminals.

These statements springfrom stereotypes statementsthat assign a certain characteristicto all people who are membersof a certain group. None ofthem is true, and they aredamaging to the process ofbuilding bridges betweencultures.

Stereotypes can be modifiedor erased through personalcontact and education, but it is aprocess that takes time and adetermined effort. Sometimes aperson may find it easy - acultural shortcut, of sorts - torely on stereotypical thinkingabout someone who has grownup in a different culture. Thatperson may accept certaingeneralizations about otherethnic groups without taking thetime to learn the facts aboutindividuals who have resettledin his or her community. Whenthe tables are turned and thesame people become the focusof stereotypical thinking, theyusually object strongly, but theyare often unaware that theycommit this mistake themselves.It takes a conscious effort todiscard the tendency tostereotype, which stands as abarrier to accurately see, hear,and understand a person fromanother culture.

If the Goal Is Cultural Bridge-Building, Who Should Laythe First Plank?

Popular etiquette guideswould probably decree that thehost community is responsiblefor making new residents feelwel-

17

come. That is what actuallyhappens. When a refugeefamily settles in America, theOffice of Refugee Resettlementmakes sure that their immediateneeds are provided for severalmonths.

Local organizations alsoreach out as sponsors and assistrefugees with day-to-day as wellas long-term services. These ser-vices help to make a family feelpart of a new community, butother groups and governmentalinstitutions - such as schools,religious groups, neighborhoodorganizations, youth groups,and law enforcement - also cantake important steps to makerefugee families feel welcome.Similarly, refugee families mustresist the inclination to associateonly with members of their ownculture. By reaching out,meeting local neighbors andshop owners, inviting newfriends to traditional holidaycelebrations and encouragingchildren to participate in sportsor youth activities, refugees willincreasingly feel comfortablewith the daily routines andcultural standards of theirAmerican neighbors.

Reaching out must comefrom both directions. InLincoln, Nebraska, a free eight-week Citizens' Academy for

refugees has been established tolet newcomers know what lawenforcement does and how itworks, but the refugees need totake advantage of the opportu-nity to learn.

In Boston, Massachusetts,many of the street signs incertain areas of the city are nowposted in two languages. Themunicipal transportationdepartment made the effort toaccommodate people who donot speak English; the refugeesworked with the transportationdepartment and the police tomake a change that is helpful toresettled ethnic groups in thecity.

Bridges Can't Be Built in aDay

For an entire lifetime, peoplelearn about and adjust to thestandards and habits of theirown culture. Success in adapt-ing to a new culture does nothappen overnight, or in a week,or in a month.

If a Cambodian refugeesettling in the Bronx finds thatAmerican neighbors are slow toaccept dress customs, types offood eaten, or family traditions,the community can be educatedby sharing her-

Local organizations assistrefugees to make (them) feelpart of a new community.

Success in adapting to a newculture does not happenovernight or in a week or amonth.

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Acceptances of somedifferences, such as dress orcooking, may come quickly.Others may take longer andbe more difficult.

To begin bridge-building,determine the needs of yourspecific community and of therefugee group or groups.

itage in a presentation to schoolchildren, through a culturalfestival, or at a neighborhoodsocial gathering. It may taketime for your neighbors tounderstand your culture, but itwill happen.

If a community serviceofficer in the police departmentfinds that few Cambodianwomen are taking part in anESL class at the high school,suggest that the class move to aneighborhood meeting hall orsome other place where thewomen might feel morecomfortable. Day care for veryyoung children may be theissue. Ask leaders in thecommunity if there are meetingplaces that provide safe areas forchildren and inquire abouttemporary baby sitting orsupervising services. Somerefugees may resist joining acommunity program immedi-ately but may warm up to theidea later if the program ispresented through a workplaceor at a religious institution.

Acceptance of some dif-ferences, such as dress orcooking, may come quickly.Others - those based on lessvisible cultural concepts - maytake longer and be more diffi-cult. For example, Americanstend to view the concept of time

and punctuality as moreimportant than do a number ofother cultures. The Asian con-cept of authority is stronglyrooted in the power of thefamily, headed by a dominantmale. Some ethnic groups viewproblems or conflicts as private,personal matters, not to beshared with law enforcement orothers.

Each of these conceptualdifferences is deep-rooted andnot easily - or quickly - changedto conform with the culturaltraditions of a new country. Butthey can be explained, demon-strated, and accommodatedwithin a framework ofcooperation and earnest effort tolearn and share among ethnicgroups. One place to start is in amulti-cultural group, focused onsolving local problems.

Creating a Multi-CulturalCoalition and SettingPriorities

It is critical to begin abridge-building and crossingpartnership by determining theneeds of your specificcommunity and of the refugeegroup or groups. If most of therefugees in your communityarrived in the United States witha functional

19

command of English, then yourefforts should be directed towardmeeting other needs, such as set-ting up a job fair, helpingestablish a Business Watchprogram, or arranging organizedactivities for young people.Community priorities must beestablished, preferably through acoalition of all members of thecommunity. This group's task isto accurately assess needs,design appropriate programs,and find funding and otherresources, if needed.

In Portland, Oregon, thePolice Bureau and H'mongAmerican Unity of Oregon, Inc.,an organization of H'mongrefugee leaders, signed a Letterof Agreement in support of acomprehensive partnership toeducate H'mong families onOregon law and educatespecially designated policeofficers in ethno-culturalexpectations of the H'mong-American community. Therefugees promised to assist thePolice Bureau by reportingcrime, testifying in court, andhelping to locate suspects. ThePolice Bureau promised to trainofficers to work closely with theH'mong community to ensuregreater safety in theirneighborhoods.

According to Sgt. LarryRatcliff and Community

Policing Assistant DoanThaooanh of the Portland PoliceBureau, members of the Bureaufirst met informally withcommunity leaders, thenexpanded the group to includerepresentatives of other ethnicgroups. They set up a TaskForce and developed a missionstatement, directing theparticipants to facilitatecommunication, cooperation,and assistance between the lawenforcement and Asiancommunities.

The Task Force sponsored aworkshop for Asian leadersfocusing on why and how thepolice do their job. The partici-pants then returned to theircommunities and taught otherswhat they had learned. Inreturn, Asian community mem-bers teach law enforcementabout their culture andtraditions. The Task Force alsoaddresses conflict resolutionbetween ethnic groups andmulti-cultural education inschools. It has the support ofthe mayor, the chief of police,the district attorney's office, andthe city council. According toSgt. Ratcliff, this political sup-port has helped the City ofPortland work toward the goaloutlined in the Letter ofAgreement that was signed bythe president of the HmongAmerican

The Police Bureau andrefugee leaders signed a letterof agreement in support of acomprehensive partnership.

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As a result ... Asian residentsare more willing to reportcrimes, community membersfeel safer, fear has beenreduced ... and trust hasincreased.

Unity of Oregon, Inc. and thePortland chief of police:

WHEREAS the City ofPortland has made it aconcern of priority toempower the citizenry of theCity to direct the Bureau ofPublic Safety to work col-laboratively with the variousand diverse communitiesconstituting the City ofPortland in establishingcommunity based systems ofsupport and enforcement forthe ordinances of the City ofPortland, and the State ofOregon, i.e. "CommunityPolicing"WE ... pledge the honor ofour respective offices, andthe resources of ourrespective organizations,toward the execution of acomprehensive partnershipagreement of mutual policiesand practices conforming tothe aspirations of the OregonConstitution, the expecta-tions of Federal, State andlocal law, in deepest respecttoward the ethno-culturalnorms of the H'mongcustomary law (where suchlaw is not inconsistent withthe letter and interests ofOregon law)7

The Task Force alsoinvolves young people in thecommunity by meeting withthem at pizza restaurants to heartheir concerns. The youth go onsummer field trips wherecounselors talk with them aboutdrug use, violence, and gangactivity. The Task Force's futuregoals for youth include helpingthem with their homework,encouraging them to stay inschool, and securingscholarships for college.

Portland reports that, as aresult of the Task Force and theLetter of Agreement, Asianresidents are more willing toreport crimes, community mem-bers feel safer, fear has beenreduced in the community, andtrust has increased between theAsian population and lawenforcement.

When organizing a multi-cultural task force, this checklistoffers a good framework:

• Getting started. Will allcultures in the communitybe fairly represented? Ispower evenly distributed?Can the coalition makechanges in the com-

21

munity that will meet theneeds of the participants? Isfunding available?

• Working out logistics: Isthere a meeting time that isagreeable to all Task Forcemembers? Is the meetingplace readily accessible toeveryone? It might benecessary to schedule twomeetings to enable thegreatest number ofcommunity residents toattend.

• Designing goals andstrategies: Are theresufficient data to determinethe real needs of the refugeeand host communities? Willthe strategies result in long-term changes? Are theyfocused on the realproblems? Are the goalsreasonable and reachable?Are the strategies agreeableto all coalition members?

• Leadership: Can the leaderswork harmoniously togetherto advance task force goals?Have they developed asystem for arriving atconsensus within themembership? Are the leaderstrained and culturally

sensitive? Are they able todiscourage stereotyping andrelieve inter-group tensions?Task Force members mightconsider using facilitators tohelp develop effectiveleaders.

• Evaluation: When a programor activity is implemented, isthere a system for measuringsuccess and recognizing theefforts of those involved?Any system used to measuresuccess should reflect thegroup's goals. If possible,group members should agreeat the outset on how theywill measure progress.

• Sensitivity: Because the taskforce consists of members ofdiverse cultures, it isimportant to be sensitive tothe needs of different reli-gious groups whenestablishing meeting times.Create a multiculturalcalendar that notes allgroups' important obser-vances, and use it.

When structuring a taskforce or coalition, reach out to awide variety of groups, such asneighborhood associations, civicgroups, parent-teacher

When structuring a task forceor coalition, reach out to awide variety of groups.

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Help can also come in theform of volunteerism, talent,and donations of supplies orrefreshments.

Conflicts are natural andnormal. They can includematters or personal taste aswell as matters of ethnicidentity.

organizations, business leaders,and social service providers.

A Note About Funding

If the task force or coalitionhas chosen projects that requiremoney, it will need to look forfunding sources cash or in-kind donations. Foundationsand corporations frequentlyhave special funds for localgroups. Local communityfoundations are an excellentresource. The group may applyfor funds from local, state, orfederal government agencies,through departments ofcommunity action, drugprevention, public safety, publichousing, neighborhoodrevitalization, or economicdevelopment. Local librariesoften have listings on fundingresources in the community.The Chamber of Commerce andthe local economic developmentoffice may have excellentsuggestions.

Help also can come in theform of volunteerism, talent, anddonations of supplies orrefreshments. Don't overlookthe assistance of neighborhoodresidents, students, businessowners, and other organizations.Churches and civic clubs are

often eager to get involved withcommunity programs. Just ask.

Managing Conflicts

When culturally diversegroups work together, it isinevitable that conflicts willemerge. Conflicts are naturaland normal. They can rangefrom seemingly minordifferences arising from socialcustom, such as gestures orfacial expressions, to major dif-ferences of opinion, such as theroles of family members. Theycan include matters of personaltaste as well as matters of ethnicidentity. The following tips formanaging conflicts betweencultures are adapted fromsuggestions by conflictresolution experts.8

• Don't try to minimizedifferences; they are real.Ignoring cultural differencesmay be as harmful asexaggerating them.

• Let the disputants uselanguage, symbols, andcommunication stylesnecessary for expressingthemselves. Ask someonewho is cross-culturallytrained to facilitate andinterpret the discussion.

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• Don't assume anythingabout the disputants. Accrueand evaluate the facts as theyare presented.

• In inter-cultural encounters,what was perceived to havehappened is more importantin resolving conflict thanwhat really happened.

• Never put anyone down forbeliefs or standards.

• Listen carefully and validatethe concerns of each party.

• Be patient and willing tolearn. Many Americanswant quick results. Peoplefrom some other cultureswork on different timetables.

• Use win-win negotiatingprinciples. Try to come upwith acceptable solutions -or compromises - for bothsides, perhaps using multipleoptions. Avoid using powerplays.

• Reach solutions creatively.In managing a conflict, thereare man perfectly acceptableavenues from Point A toPoint B.

• Expect different expec-tations. The rules of the

game cannot be taken forgranted.

Nonverbal behavior -gestures, eye contact, silences,seating arrangements,appearance, and concepts oftime - have different levels ofimportance and even differentmeanings in different cultures.Many cultures emphasizenonverbal over verbalcommunication, resulting inserious misunderstandingsduring conflict management.Inviting a cross-culturallytrained individual to be a part ofthe process is critical.

Even reaching agreementcan be confusing. "Beingreasonable" can vary fromculture to culture, making somedisputants seem rigid orillogical.

Working With the Media

The media in the community- newspapers, local radio, andtelevision stations - can haveboth positive and negativeeffects on multi-cultural bridge-building. On one hand, themedia can help by publicizingspecial events, festivals, social orsports activities, or safetyprograms that bring togetherneighbors from

“Being reasonable” can varyfrom culture to culture.

The media can have bothpositive and negative effects.

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The school system is a naturalavenue for reaching children both refugee and non-refugee.

different backgrounds andtraditions. On the other hand,the media sometimes perpetuatestereotypes by running storiesthat characterize all members ofa community by the activities ofa few. For example, if there aregang problems in a certainneighborhood, the report on thelocal news may tend toincriminate all the young peoplein that neighborhood rather thanthe few who are actuallyinvolved. That sameneighborhood may also be thehome of young people whohave excelled in school, inplaying the piano, or involunteer work with the elderly.Often these kinds of youth areoverlooked in the rush to reportmore sensational news.

An excellent way toencourage the media to spreadpositive information in thecommunity is to invite them toattend your bridge-buildingactivities. Supply communityevents reporters withbackground information, peopleto contact for further details, anda list of events planned for thefuture. Ask someone to write afeature story on a refugee familythat has adjusted successfully totheir new life. Submit details ofa program that translatesimportant safety materials into

other languages, perhaps as partof an ESL class.

Working With Schools

• In Lowell, Massachusetts,the Cambodian communityoutreach specialist workingwith the police departmenttakes his culture to theclassroom, sharinginformation about his nativeland and traditions withschool children.

• In Willows, California, afamily from Laos has takenthe lead in battling thelanguage barrier. Bothhusband and wife areworking with the schoolsystem to teach ESL classesfor Laotian refugees.

• In Rochester, Minnesota,the Inter-cultural MutualAssistance Associationplaces counselors in publicschools to provideintervention and mediationservices.

• The Vietnamese ParentAssociation of Oregonannually presents theVietnamese Senior ExcellentStudent Award, which is a

25

tradition in Vietnam. TheAssociation raises funds fromthe Vietnamese businessestablishment, local financialinstitutions, and otherorganizations to provide theawards.

The school system is a naturalavenue for reaching children both refugee and non-refugee.Social contact between culturesoccurs frequently in theclassroom, on the playground, andduring after-school events; socialcontact and interaction form thebasis of cultural acceptance.Teachers and other adults canpresent age-appropriate informa-tion to young people duringassemblies; in conjunction withcurriculum units on geography,government, religion, or socialscience; or as part of specialevents, such as cultural heritagefestivals.

Check with members of thelocal school board or the schoolprincipal to develop a programthat will introduce positive imagesof different ethnic cultures toyoung people in the community.Educating young people oftenserves as sufficient momentum tomake changes throughout thecommunity.

General Resources

National Coalition Building Institute1835 K Street, NW, Suite 715Washington, DC 20006202-785-9400

A national organization committedto building coalitions and reducingprejudice in business, schools,universities, and other groups.NCBI sponsors three institutes ayear to educate the public aboutconflict mediation and prejudiceresolution.

Community Relations ServiceU.S. Department of Justice5550 Friendship Boulevard,Suite 330Chevy Chase, Maryland 20815301-492-5929

A division of the JusticeDepartment that assistscommunities experiencing racial orethnic strife, by mediating disputes.

National Multi-Cultural Institute3000 Connecticut Avenue, NWSuite 438Washington, DC 20008-2556202-483-0700

The Institute is a national trainingand development organization thatprovides a forum for discussion ofcritical issues of multi-culturalism.It organizes three conferences ayear, offers diversity training andconsulting, develops educationalmaterials, and maintains amultilingual mental healthcounseling and referral service.

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The National Conference (formerly theNational Conference of Christiansand Jews)

71 Fifth AvenueSuite 1100New York, New York 10003212-206-0006

A human relations organizationdedicated to fighting bias, bigotry,and racism. The NationalConference promotesunderstanding and respect amongall races, religions and culturesthrough education, advocacy, andconflict resolution.

World of DifferenceAnti-Defamation League of B'Nai

B'rith823 United Nations PlazaNew York, New York 10017212-490-2525

National, multiracial, nonprofitorganization that seeks to buildpublic opposition to hate groupactivity and bigoted violence andto assist victims of such violence.Conducts educational programs,research, victim assistance,community organization,leadership training, and publicpolicy advocacy.

Notes1 The Ford Foundation, Changing

Relations, Newcomers andEstablished Residents in U.S.Communities, New York: 1993, p.20.

2 Susan Berk-Seligson, "TheBilingual Courtroom," 1990; citedin Ruth Hammond, 'Lost inTranslation," The WashingtonPost, October 24, 1993, p. C-3..

3 Ruth Hammond, 'Lost inTranslation," The WashingtonPost, October 24, 1993, p. C-3.

4 Hammond, "Lost inTranslation."

5 The Ford Foundation, pp. 50-59.

6 The Ford Foundation, p. 6.

7 Revision Three signed April 28,1993 by Chief Tom Potter andPresident Paul Pia Cha.

8 Inter-cultural Resource Center,Roslindale, CA; Susan B. Gold-stein of the Neighborhood JusticeCenter Data Project (Program onConflict Resolution, University ofHawaii, "Cultural Issues inCommunity Mediation"; and JanJung-Min Sunoo, Commissionerof the Federal Mediation andConciliation Service, Glendale,CA.

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CHAPTER IIAN INTRODUCTION TO

REFUGEES FOR THE LAWENFORCEMENT COMMUNITY

This chapter will help membersof the criminal justicecommunity develop methods forserving refugee communitiesmore effectively. It offerssuggestions for getting to knownewly resettled refugees andhelping them learn how to livesafely. It also discusses theproblems of youth gangs andbias-motivated crimes. Finally, itdescribes successful cross-cultural law enforcementprograms and the challengesthey encountered - in commu-nities around the country.

Though many Americanshave lived and worked besidepeople who grew up in adifferent culture, a large numberhave not. For those who havenever shared experiences withpeople from other cultures, the"American way of doing things"might seem to be the "right"way, or the "only" way. Theyare not sensitive to the fact thatthere are other valid culturalvalues around the world. Thiscultural insensitivity may not beintentional, but it becomes aserious barrier to helping

refugees through the difficultprocess of settling in a newcommunity.

Differences betweencultures affect basic standards ofbehavior, religious or holidaytraditions, verbal and non-verbalcommunication patterns, stylesof dressing, social attitudes,work ethics, and familyrelations. But "different" doesn'tmean "wrong."

Different cultures can existeven within a region. Thestatement that a community ofSoutheast Asian refugees hassettled in a city or town is notvery specific. Similar to theregional differences foundbetween residents of NewOrleans, Louisiana, and Bronx,New York, substantialdifferences exist betweenrefugees from Cambodia,Vietnam, and Laos. "SoutheastAsian" is a term covering abroad expanse of cultures, all ofthem in the same section of theworld but all having

Cultural insensitivity may notbe intentional, but it becomesa serious barrier to helpingrefugees.

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Languages may sound similarbut have substantivedifferences in connotation andphrasing.

Refugees need to understandthe police and the police needto understand them.

distinctive histories, religions,and social heritages.

Regional differences occurbetween natives of differenttowns in those Southeast Asiancountries. The languages,which may sound similar, havesubstantive differences in con-notation and phrasing. Acomparable example from theEnglish language is the Britishuse of "bonnet" for the hood ofa car or "lift" for an elevator.

Other refugees also come tothe U.S. with adjustmentproblems - some similar andsome quite dissimilar to thosefaced by Southeast Asians andwith a variety of backgroundexperiences. One early study(1986) of Afghan refugeesfound that many of them viewedtheir stay as temporary and didnot put much effort intoassimilating into their newcommunity.

According to the same 1986study, Ethiopians who resettledinto the U.S. had high educationlevels in fact, many of themhad been college students - buttheir work experience wasrelatively limited. Knowledge ofEnglish varied greatly. Thestudy found that Ethiopians had

serious difficulty adjusting to theU.S.

Polish refugees, many ofwhom were highly educated,were able to find employmentmore easily than some otherrefugee groups, the same studyshowed. Romanians weregenerally well-educated, highlymotivated to find jobs, andhard-working. However, as agroup they did not socializewith existing residents; theirchurches were their main focusof community interaction.

Why Learn About theCambodians, the Romanians,the Haitians, or the Laotians?

The answer is simple. Theyare members of the communitythat law enforcement protectsand serves. Certainly, membersof the community share theresponsibility for keepingthemselves safe, but they can doso only if they understand how,when, and why. That is whythey need to understand thepolice, and the police need tounderstand them.

Minority ethnic residentsmay currently represent only asmall portion of a jurisdiction'stotal population, but considersome

29

projections for the future. Astudy published in 1992estimates a remarkable shift inAmerican cultural diversity overthe next 50 years.2 By the year2040, it is projected that thenation's population will grow to355.5 million and experience aprofound change in its racial andethnic makeup. That total isexpected to include:

• 210.5 million (non-His-panic) European Americans,an increase of less than 13%;

• 44.1 million AfricanAmericans, an increase ofalmost 50%;

• 34.5 million Asian andPacific Islander Americans,an increase of nearly 400%;and

• 64.2 million Hispanics, anincrease of nearly 200%.

If refugees (or other culturalminorities) live in a community,its law enforcement personnelneed to be culturally competentto be able to do their job well.The Community RelationsService of the U.S. Departmentof Justice says that 'becomingculturally competent is adevelopmental process for theindividual and for the system. Itis not something that happensbecause one reads a book or

attends a workshop or happensto be a member of a minoritygroup. It is a process born ofcommitment to provide qualityservices to all. "3 Becomingculturally competent requiresunderstanding how values,beliefs, attitudes, and traditionsinfluence behavior.

Coming to America: ARefugee's Experience in a NewLand

The formal process ofrefugee resettlement begins withan official approval from theU.S. Department of State for therefugee, and possibly his or herfamily, to come to the UnitedStates. After arriving in a U.S.refugee camp, the refugee isprocessed through a VolunteerAssistance Agency (VOLAG)that contracts with the StateDepartment to attend to therefugee's immediate needs forlanguage training, medicalcredentials, job developmentand training, living arrange-ments, and skills leading to self-sufficiency. The refugee maymeet with a representative fromthe state Office of RefugeeResettlement, a sponsor, or amember of a Mutual AssistanceAssociation, who may help himor her

Becoming culturallycompetent requiresunderstanding how values,beliefs, attitudes, andtraditions influence behavior.

30

Try to imagine being suddenlyremoved from your familiarsurroundings, transportedwith limited possessions to acommunity overseas wherefew people speak English.

with cultural adjustment. Thisprocess and the assistanceprovided - is highly variable,and in some cases, the resettledrefugee may have received littlepractical assistance beforereaching a community.

Try to imagine being sud-denly removed from familiarsurroundings in Houston,Topeka, Jersey City, orJacksonville. Imagine beingsuddenly transported withlimited possessions to acommunity in Poland or Russiawhere few people speakEnglish. There is someassistance from a local groupwith housing and immediateneeds, but that is all. Imaginebeing responsible forassimilating yourself and yourfamily into a new community.

Imagine being in this youngVietnamese woman's shoes: Sixmonths after she arrived in thePortland area, she became avictim of sexual assault. Shespoke very little English, feltoverwhelmed by the strangesurroundings, and was terrifiedafter the incident. Even thoughwomen in her culturetraditionally don't speak of suchpersonal things, she wasencouraged to talk to the policeabout her assault and wasassisted with the reportingprocedure. She was also

referred to the Women'sStrength Program of thePortland Police Bureau thatteaches women self-defense tac-tics. Unfortunately, she couldnot attend the program becauseshe spoke so little English.However, Portland reports thatthe program is currentlydeveloping a course for non-English-speaking newcomers.

In Lincoln, Nebraska, aVietnamese family wasthreatened in their home by ayoung male who set fire to theirtrash can after midnight. Thesuspect then knocked on thedoor and demanded a hundreddollars to extinguish the fire.The family called the police butwere unable to explain inEnglish what had happened.The next day, the family went tothe Lincoln Police Departmentand, with the help of acommunity service liaison asinterpreter, reported the details.The police officer and theinterpreter suggested that thefamily have a home security sur-vey and join Operation I.D.With the family's consent, thecommunity service liaisonaccompanied the home securityofficer as he conducted thesurvey.

In New Jersey, a Vietnamesewoman was

31

injured and robbed by a groupof teenagers. She was scaredand didn't report the crime toanyone because, based on herexperiences in her homecountry, she thought no onewould pay attention. The teensreturned to her apartment toharass and threaten her, sayingthey would kill her if she toldanyone. They phoned her, senther threatening letters, and rangher doorbell. She and hermother, who lived with her, feltfrightened and helpless. Thewoman gathered her courageand reported her experiences tothe International Institute ofNew Jersey. According to PhiNguyen, the Institute's CrimeVictimization Coordinator, thewoman sought help from theCrime Victimization Program,which acted as a bridge to ser-vices from the local policedepartment. 'She now freelyreports crimes to the police withthe aid of a translator and seesthe police as supportive publicservants," reports Nguyen.

The complicated realities oflaws, rights, and regulations canoverwhelm a new resident. Theconfusion of their new experi-ences is compounded by strangedriving regulations, unfamiliarsymbols on street signs, grocerystores with unusual foods,unaccustomed school enrollment

procedures, congested traffic,and the many differences in day-to-day commerce. Andeverything is labeled in a strangenew language. For somerefugees, it means starting lifecompletely anew. When theyfeel comfortable in asking forhelp, newcomers look to peoplewho can explain the socialregulations and institutions thatnow shape their lives. If lawenforcement reaches out with apatient and friendly hand, it canerase old stereotypes and buildstrong, safe bridges ofunderstanding.

Taking the Lead

Although a partnership is atwo-way street, the hostcommunity often has theresources and the communitybase to take the lead in reachingout to new residents.Additionally, police officers andother members of the criminaljustice system are role modelsfor the community at large. Iflaw enforcement takes the firststep in working with familiesfrom another culture, others willfollow that lead. This sets thestage for community-wideaction to work more closelywith refugees.

To become culturallycompetent, take the first

For some refugees, it meansstarting life completely anew.

If law enforcement takes thefirst step, others will follow.

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Actively reach out to all ethnicgroups in the community.

Positive personal interaction iskey to gaining access torefugee communities.

step to get to know the newmembers of the community.Take time out to talk withCambodian shopkeepers.Spend an hour each afternoon atthe playground in the area whereRussian families have settled.Ask to talk about home securityto a women's group, with helpfrom an interpreter. Activelyreach out to all the ethnic groupsin the community. Check withlocal refugee resettlement groupsfor guidance.

Gaining Access to RefugeeCommunities Informally andFormally

According to researchconducted by the FordFoundation, positive personalinteraction is key to gainingaccess to refugee communities.'Law enforcement often hasexcellent opportunities to do thisthrough day-to-day applicationof community policingtechniques. Walking throughhousing complexes, talking withmerchants, attending social orholiday gatherings, getting toknow children playing on thestreet - these techniques arebuilding blocks of inter-culturaltrust.

• In Willows, California,ethnic tensions among youth

have decreased since aCommunity Service Officerbegan meeting with the par-ents of Asian gang members.

• In Portland, Oregon, policemeet regularly with H'mongcommunity leaders and clanheads to discuss problems intheir community. As a resultof a better understandingbetween refugees and lawenforcement, refugees aremore comfortable in report-ing crime, and communitymembers are experiencingboth a decrease in fear and asense of increasedprotection.

• In Abbeville, Louisiana, theOffice of Migration andRefugee Services and theVietnamese-American Vot-ers Association invited themayor, a district court judge,and the chief of police to atown meeting focusing oncrime reduction. Atranslator served as liaison inthe dialogue.

One of the more effectivemethods of gaining access to therefugee population is through alocal Mutual Assistance Associ-

33

ation (MAA) or voluntaryagency that has assisted orsponsored a local refugeeresettlement. Although MAAsdon't yet exist in allcommunities where refugeeshave settled, they are part of agrowing movement to enableforeign-born residents to settle inthe United States with a greatersense of cultural accom-modation.

Some MAAs are looselystructured; others aresophisticated, incorporatedorganizations. The groupsprovide a range of services tonewcomers, varying fromemergency assistance to formalemployment and social serviceprograms to long-termcommunity development. Theycan be categorized into six majortypes, according to their primaryservice or program focus:

• Cultural preservation andsocial activities: generallyoperating on a voluntarybasis and picking up wherethe domestic resettlementsystem left off by helpingnewcomers find a home inAmerican society.

• Religious services: pro-viding traditional religious

and cultural services and/orinformal counseling; usuallyheaded by a monk, priest, orother religious leader.

• Special constituencygroups: including women'sgroups, senior citizensocieties, specific fraternalgroups (such as veterans),students, and professionalsocieties. These groups areusually able to mobilizevolunteers and carry outwell-organized programs ofactivities that address theinterests of theirmembership.

• Resettlement/social services:providing a range of serviceswith access to limited publicfunding. These groupsusually have more demandson their services than theycan meet.

• Business and economicdevelopment: providingprograms with the potentialto enhance refugee economicpower. These groups lay thegroundwork for localrefugee businessassociations, chambers ofcommerce, and communitydevelopment corporations.

MAAs provide a range ofservices to newcomers.

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MAAs are an excellent sourceof help for law enforcementofficers seeking to reach out tothe refugee community.

• Advocacy and politicalaction: focusing on politicalaction and advocacy,including election yearpoliticking, voter registrationdrives, and working forselected candidates.5

MAAs are an excellentsource of help for lawenforcement officers seeking toreach out to the refugeecommunity. Many MAAs relyon a network of volunteers tooffer interpreter/translationservices or to serve as liaisonbetween refugees and elementsof the criminal justice system.They also help ease tensions ifthere is a lack of understandingbetween newcomers and lawenforcement and work directlywith law enforcement toestablish personal safety, crimeprevention, or other educationprograms. Lists of local MAAsand of Volunteer AssistanceAgencies (VOLAGS) areusually available from stateoffices of the Office of RefugeeResettlement or from the contactfor volunteer organizations inthe governor's office.

Community Relations

In some communities,officers are accompanied ontheir beat by personnel hired

from the refugee community. Inothers, there are sworn Commu-nity Relations or OutreachOfficers who serve as liaisonbetween the department and therefugee population(s).

The role of communityrelations personnel is most oftendefined by the needs of thedepartment and the community.Among the duties described bya number of communityrelations personnel across thecountry are:

• serve as general liaisonbetween ethnic communityand police;

• educate refugees about lawenforcement, sometimes intheir homes;

• translate important legaldocuments;

• meet with parents of gangmembers;

• begin crime watch groups;• work with youth groups;• teach crime prevention to

merchant groups and others;• encourage victims to report

domestic violence or childabuse; and

• help when there are medicalemergencies or other crises.

According to Lt. AndrewHall of the Westminster,

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California, Police Department,the benefits of working withethnic community relationsliaisons include:

• more effective problem-solving;

• minimization of thelanguage barrier;

• reduction of stereotypes;• cross-cultural education;• cross-cultural friendship and

trust; and• increased liaison between

communities.

Some police officers whocome from the refugeecommunity have expresseddifficulty in trying to "work intwo camps at the same time."Serving as liaison between twocommunities, they feel that theyare expected to solve all theproblems for everyone. Whenhiring an officer or staff memberfrom another culture, it isimportant that the policedepartment clearly define rolesand responsibilities; theorganization must providesufficient support so that theemployee can address problemseffectively.

It is critical to provide cul-tural training to refugees whojoin a law enforcement staff,either as sworn officers or ascivilians. Make sure that they

receive comprehensiveinformation not only aboutcrime and the legal process, butalso about victim assistance,domestic violence, and the cycleof violence, when victims ofabuse continue the violence byabusing others. Often theseconcepts are perceiveddifferently, or the crimes areignored, in their cultures.

It is also important to teachethnic law enforcementpersonnel how to remainaccessible to members of theircommunity. This lesson canoften be taught by example:when police officers and staff areaccessible to all communityresidents, refugee employeeslearn to overcome culturalinhibitions. Create anatmosphere where refugees feelcomfortable asking questions.Take the time to find solutionsto their problems and concerns.

It is critical to understandthat hiring one ethnic employee or a representative of onlyone gender is not sufficient tomeet the needs of a multi-cultural community. One officeror staff person is a good start;several officers, including malesand females, are considerablybetter, particularly if thecommunity includes a variety ofethnic groups.

Hiring one ethnic employee isnot sufficient to meet the needsof a multi-culturalcommunity.

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Police storefront (stations)bring a variety of services torefugee neighborhoods.

Uniformed police officerspatrol the public housingcommunities, making friendswith the residents and helpingthem with their problems.

Hiring ethnic community servicepersonnel should be just onepart of a comprehensivestrategy.

Storefronts

Police storefrontssuccessfully bring a variety ofservices directly to refugeeneighborhoods in severalcommunities. A storefront inDorchester, Massachusetts,staffed with one Vietnamesewoman serving as communityliaison and three full-time policeofficers assigned to assist her,provides a wide range ofservices to the Vietnamesecommunity. The storefront staffgives presentations on crime pre-vention to ESL classes anddistributes brochures on crimeand gang prevention techniques.They also arrange for courttranslation and assist with com-munity organization, reachingthe community through postersand newspaper ads.

The Dorchester storefronthas made strong inroads into thecommunity's fear of crime.According to John Chen, thestorefront's Community ServiceOfficer: "When residents see youare making an effort andspending time with thecommunity, they trust you."

Community Outreach

In St. Paul, Minnesota, ACommunity Outreach Program ACOP brings the policedepartment and the city's publichousing agency together to offerpersonal safety and crimeprevention programs to the largeSoutheast Asian refugeepopulation. ACOP has eightuniformed police officers including three H'mong officersand one plainclothes officer whopatrol the public housingcommunities, making friendswith the residents and helpingthem with their problems. Theyperform all the regular duties ofa police officer, walking throughthe community on foot duringthe summer months, androutinely attend resident councilmeetings, coach athletic teams,and provide leadership for youthactivities. There are also twofull-time Cambodian crimeprevention specialists who haveestablished block clubs that meetregularly.

ACOP also sponsors anAsian social worker who assistsyoung people involved in first-time misdemeanor offenses andprovides emergency interventionservices and

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counseling to families in crisissituations, such as domesticdisputes.

The police department andthe housing agency havededicated phone lines withAsian-speaking operators forcalls from residents who do notspeak English. In addition,more people are willing to reportconcerns or criminal incidentsbecause they feel they havedeveloped a special relationshipwith the officers who patrol theirneighborhoods. Seven days aweek, ACOP has interpreterswho provide assistance inEnglish, Lao, H'mong, andThai.

Working with YoungRefugees

Children in the refugeecommunity often feel caught inthe middle between thetraditions of their parents' cultureand the exciting possibilities oftheir new lives in America.Fashion styles, social activities,and peer interaction can becomebattlegrounds between membersof the younger generation andtheir more traditional elders.Parents fear that their childrenwill lose cultural ties to theirhomeland when they choose tospeak English, join Americanyouth in their activities, andspend less time with the family.

As rifts grow betweengenerations of refugees, youngpeople sometimes seek supportand acceptance from othergroups, such as gangs. Whiletheir parents are dealing with thedifficulties of settling in a newand often unaccommodatingcountry, the teens see youthgang members wearing goldjewelry and driving expensivecars. They equate gangmembership with success andacceptance.

Programs that offer alter-natives have been able toprovide the same sense ofacceptance and belonging thatyouth seek from gangs. To besuccessful, such programsinvolve the parents of potentialgang members, teaching themparenting skills and ways torecognize the signs of gangactivity in their communities.The entire community must beeducated and actively engagedin keeping gangs out of theirneighborhoods.

When working with youngpeople who come from differentcultures, it is helpful for lawenforcement to enlist the aid ofsomeone who can help bridgethe cultural and generational gap- an adult who understands thetraditions, values, and beliefs ofthe young person's nativeculture. Many

Seven days a week ACOP hasinterpreters who provideassistance in English, Lao,H’mong, and Thai.

Enlist the aid of someone whocan help bridge the culturaland generational gap anadult who understands thetraditions, values, and benefitsof the young person’s nativeculture.

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It is important to foster theunderstanding that police andsheriff’s deputies seek to serveand protect as well as enforce.

young people are intimidated bya police officer's authority; it isimportant to develop and fosterthe understanding that policeand sheriff's deputies seek toserve and protect as well asenforce.

In Lincoln, Nebraska, theCommunity Services Unit of thePolice Department is a sponsorof the Lincoln Asian YouthClub, open to young peoplewho are enrolled in ESL classes.The Club seeks to "help studentspreserve and promote their ownculture(s) and at the same timeimprove their understanding andknowledge about the newculture through information andcommunity activities such asrecreation and entertainment, jobreadiness and career orientationworkshops, and volunteerservices." Young members areencouraged to make positivecontributions to the community,to pursue higher educationalgoals, and to become productivecitizens.

Meeting every month, theyouth attend workshops selectedby the members. Some of theworkshops included tours of aTV station, a dental college, anda hospital. There have beentalks on the techniques ofphotography and how to apply

for college scholarships. Thegroup helped the Lincoln AsianCommunity and Cultural Centerraise funds for their Asian Nightand attended the Governor'sConference on Violence andYouth.

Hate- or Bias-MotivatedCrimes

As law enforcement per-sonnel know, a hate- or biasmotivated crime occurs when aperson or person(s) representingone race, religion, value system,gender, or ethnic origin commitsa crime specifically againstsomeone who fits into a grouphated by the perpetrator. Bias-motivated violence can be aphysical or emotional actperformed with the intent tointimidate or harm a person orthe person's property.

Incidents of hate- or bias-motivated crimes, fromvandalism to murder, are rising.Their victims are four timesmore likely to be hospitalizedfor injuries than are victims ofother assaults.6

The Hate Crimes StatisticsAct of 1990 identifies thefollowing as crimes that may bebias motivated:

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• damage, destruction, orvandalism of property;

• arson;• motor vehicle theft;• larceny/theft;• burglary;• intimidation;• simple assault;• aggravated assault;• robbery;• forcible rape; and• murder or negligent

manslaughter.

Many perpetrators of hatecrimes are in their teens, butthese crimes have proven to bemore than acts of youthful rebel-lion. Rather, they are violentexpressions of feelings aboutsomeone considered differentand therefore "wrong." Thecrimes are motivated by a deepemotional commitment to anddefense of one's own group, andin most cases are carried out bygroups of four or more people people who would notnecessarily have acted alone.

Thomas Lee, the Commu-nity Relations Officer for theWillows (CA) PoliceDepartment, reports that feelingsof hate and bias have decreasedsince he started making presenta-tions to groups in thecommunity. "Among theyoung people, there has beenmuch less tension and name

calling," he explains, citing hisprogram as a catalyst for thechange. "When you explain theways of the minoritycommunity to the residents and explain the law enforcementsystem to the refugees themyths about each communitystart to dispel. And there havebeen fewer newspaper articlesthat contain myths aboutrefugees and law enforcementsince we started giving peoplefactual information."

Officer Lee says that thedecrease in hate and bias in hiscommunity is directly due to thelessening of tension, broughtabout by cultural education.

Education is critical toreducing these crimes. Manycommunities have solicitedpublic support and cooperationto organize hate-violenceprevention and victim assistanceefforts. Schools educatestudents about the traditions andstandards of other cultures,helping young people developrespect for people from othercountries and understand thatbeing different is not "wrong."Neighborhood groups invitespeakers from different ethnicbackgrounds to enlighten themon a vast array of culturaltraditions. Police

These crimes have proven tobe more than acts of youthfulrebellion.

Education is critical toreducing these crimes.

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Refugees may not immediatelywelcome what they mayperceive as intrusions intotheir lifestyle.

When teaching crimeprevention, avoid increasing anewcomer’s fear of crime.

departments encourage refugeesto report hate violence, helpingto bring the perpetrators tojustice for their crimes.

Crime Prevention: PersonalSafety, Neighborhood andBusiness Watch

Teaching personal safety andorganizing crime preventionprograms in multi-culturalcommunities pose uniquechallenges. Refugees may take along time to adjust to their newsurroundings, not immediatelywelcoming what they mayperceive as intrusions into theirlifestyle. Once trust has beenestablished, interest in andacceptance of local programswill come, even if the process isslow.

The language barrier is thefirst problem. It can beovercome at least in part withcompetent interpreters and well-translated materials. Whenapproaching new people in arefugee community, lawenforcement will be receivedwith greater hospitality and lessreluctance if accompanied bysomeone the refugees trust, suchas a representative from thevolunteer agency that helpedwith the initial resettlementprocess.

It is important whenteaching crime preventiontechniques to avoid increasing anewcomer's fear of crime, whichcould result in isolation from therest of the community. Accurateinformation can also emphasizethe positive skills of self-protec-tion. Assure newcomers thatneighbors, police officers, andcommunity groups are there tohelp them live safely in theirnew community.

Developing or expanding acrime prevention program thataddresses the concerns ofrefugees is more successfulwhen it couples efforts to teachpersonal safety techniques withthose that bring theneighborhood together.Personal safety shouldemphasize such basic rules aslocking doors and window,even when someone is home;leaving lights on outside thehome after dark; keeping a listof emergency phone numbersposted by the phone, storinglarge sums of money or valu-ables in a safety deposit boxrather than at home and keepingmoney safely concealed, exceptwhen paying for something.

Neighborhood programs,such as Neighborhood Watchand Business

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Watch, encourages residents towatch for suspicious activity inthe community and summonappropriate help. Wheneducating neighbors to be morealert in recognizing suspiciousactivities, also teach them theappropriate action to take. New-comers to the neighborhoodmay be willing to join a watchprogram when they feelcomfortable being around theirAmerican neighbors. Watchorganizers should make specialattempts to make refugees feelwelcome and carefully explainthe details of the program.

When organizing aNeighborhood or BusinessWatch group, ask for help fromlocal government agencies,private advocacy and serviceorganizations, religiousinstitutions, mediation services,and other groups experienced inworking with refugees orimmigrants. An interpreter willbe helpful during meetings.Print materials in appropriatelanguages, if reliable translatorsare available.

Evaluating Bridge-Buildingand Crossing Efforts

It is vitally important to beable to evaluate efforts to buildand cross cultural bridges with

the refugee population in thecommunity.

Program evaluation is apractical tool. It shows whetherthe program should keep doingwhat it's doing, do more of it,do it differently, or stop doingit.

• Evaluation tells if goals havebeen reached, such as:

• reducing crime in refugeecommunities;

• reducing the fear of crime;

• developing long-termprograms that help refugeesbecome participatingmembers of the community;

• helping refugees becomeself-sufficient;

• keeping young refugees outof gangs or other trouble;

• increasing reports of crimesagainst refugees; and

• raising the quality of life forrefugees moving into thecommunity.

Program evaluation hasother useful benefits. Validrecords of successes (or failures) barriers faced, lessons learned will

Ask for help from groupsexperienced in working withrefugees and immigrants.

Program evaluation is apractical tool.

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Think in terms of goals, whatelements must go into theprogram to reach the goals,and the expected results.

affect the amount of public,volunteer, and other support theprogram might attract as well asthe amount of future funding itreceives.

When setting up a program,think in terms of the goals(desired outcome) of theprogram, what elements must gointo program to reach the goals,and the expected results. Forexample, if a youth programwas established to deal withhigh school graffiti that makesethnic slurs against Jewish teensfrom the former Soviet Union,the program's success might beassessed this way:

• The desired outcome: greatercultural sensitivity amongteens and reduction orelimination of ethnic-biashate crimes at school andafter school.

• Program elements: A multi-cultural youth club thatsponsors an athleticprogram, socialopportunities for youngpeople from differing ethnicbackgrounds, a graffiti paint-out squad, and a twice-yearly assembly programfeaturing skits and ethnicsongs and dances for allstudents.

• Program results: The athleticprogram developed into oneof the sports highlights ofthe year, resulting in a yearlytennis tournament with otherschool teams. After twoassembly programs, theAmerican students expressedan interest in sponsoring amulti-cultural food fair as afund-raiser. Incidents andperpetrators of anti-refugeegraffiti were reported toschool security and thepolice department. Sixmonths after the youth clubwas organized, the graffitiproblem was under control.Only one incident and thatwas non-ethnic - had beenreported in the six monthscompared with six or sevenat the program's start, all ofwhich were anti-semitic.

In this example, the mea-surements of success are two-fold: simply put, the problem anti-ethnic graffiti wasresolved. Additionally, attitudestoward refugee studentschanged, as measured byincreased interest, involvement,and acceptance by the Americanstudents. These changes

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can be gauged by studentsurveys, crime reports, clippingsfrom the student newspaper orthe local media, or interviewswith teachers, coaches, and otherschool personnel.

Crime data are valuable aspre- and post-programmeasurements. They measurethe situation before the programbegan and compare it with thesituation after the program hasbeen in effect for a reasonableamount of time, which varieswith the type of program.

Mid-program evaluations arealso valuable for recordingproblems that may havedeveloped. If the program is noteliciting the desired outcome, itmay be wise to conduct a mid-course correction by changingsome of the program elements.A midterm evaluation may alsoreveal that the program is notworking at all and that the bestchoice is to discontinue thateffort and develop a substitute oralternate program.

In these times of limitedresources, it is also useful todetermine whether the programis cost-effective. Measure bothdirect and indirect costs thathave gone into the program,

such as costs for printingtranslated educationalpamphlets, purchasing athleticequipment, and providingrefreshments. Indirect costs caninclude time at the school,talking with parents about theprogram, and any travel costsincurred.

If graffiti at the high schoolis costing $3,000 a year to cleanup and the program thateliminates graffiti costs $1,750 ayear, the program is certainlycost effective.

After the program hasachieved measurable success,with evidence that it is making adifference not only at the schoolbut also in the reduced amountof graffiti on buildings in thecommunity, business ownersmay be willing to becomepartners by donating funds tosupport a program expansion or at least a continuation. Theymay prefer to donate sportsequipment, food for socialevents, or other inkind items.Always remember to publiclyacknowledge donations frombenefactors. Public recognitionwill elicit continued supportfrom current partners andencourage new partners to geton the bandwagon.

After the program hasachieved measurable success,(others) may be willing tobecome partners.

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Successful Bridge-Crossing: ASummary of Actions LawEnforcement Can Take

• When refugees have resettledin the community, take thelead - assign officers topatrol their neighborhood onfoot to get to know them,one-on-one. This processmay take time, but the timeand effort are worth it.

• Ask a qualified bi-lingualmember of the refugeecommunity to volunteer orwork as a liaison betweenthe refugee and lawenforcement communities.

• Set up a storefront in arefugee neighborhood toprovide decentralized policeand interpreter services.Encourage other gov-ernment agencies socialservices, medical, familyassistance - to offer servicesand information through thestorefront.

• Start a community outreachprogram that strengthenstrust between law enforce-ment and refugees through

counseling, athleticprograms, housingassistance, and otherservices.

• Make a special effort tobefriend young refugeeswho often find barriers easierto overcome than do theirparents. Teaching childrento roller skate may help themwin acceptance fromAmerican children in theneighborhood. Coaching ayoung boy or girl on asoftball team may keep himor her from joining a gang.

• Educate the communityabout bias- or hate-motivated crimes.Community intolerance ofhateful prejudice is thekeystone of hate-crimeprevention.

• Develop personal safety andNeighborhood or BusinessWatch programs that includerefugees. Take a little extratime for people who are justlearning to speak and under-stand English.

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ResourcesCenter for Applied Study of Ethno-

ViolenceRoom 132, Stephens Hall AnnexTowson State UniversityTowson, Maryland 21204410-830-2435

A national center dedicatedexclusively to the study of andresponse to violence andintimidation motivated byprejudice. Collects, analyzes,produces, and disseminatesinformation and materials onprograms of prevention andresponse.

Southeast Asian Resource ActionCenter

1628 16th Street, NWWashington, DC 20009202-667-4690

SEARAC educates the publicconcerning Southeast Asia andassists private and public agenciesin meeting the needs of refugeesfrom Cambodia, Laos, andVietnam. The organizationprovides a clearinghouse, training,and technical assistance. Itaddresses such areas as leadershipdevelopment, advocacy,community empowerment, andinternational development andreconstruction.

Refugee Women in Development, Inc.1735 1 Street, NW, Suite 501Washington, DC 20006202-289-1104

Helps refugee women resettled inthe United States attain social andeconomic independence and

security. Programs focus onwomen from Southeast Asia, theMiddle East, Central America, andthe Horn of Africa. Programsinclude expanding leadershipskills, conducting research onneeds and priorities, developingcommunity training curricula, andsupporting education andadvocacy for refugee women.

The Cambodian Network Council713 D Street, SEWashington, DC 20003202-546-9144

Assists Cambodian-Americans toachieve self-sufficiency throughtraining, leadership development,advocacy, and coalition-building.Programs include information-sharing, site visits to resettledrefugee communities, technicalassistance to Mutual AssistanceAssociations, projects for peoplewith special needs (youth, women,elderly), and enhanced publiceducation.

Ethiopian Community DevelopmentCouncil

1038 South Highland StreetArlington, Virginia 22204703-685-0510

Nonprofit organization provides avariety of services, such asemployment counseling,transitional housing, micro-enterprise grants, translation ser-vices, and referrals to Ethiopianrefugees.

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Notes1 The Economic and Social Adjust-

ment of Non-Southeast AsianRefugees, Vols. I and 11, U.S.Department of Health and HumanServices, 1986.

2 Barry Edmonston and Jeffrey S.Passel, "U.S. Immigration andEthnicity in the 21st Century,"Populations Today, October 1992.

3 National Crime Prevention Coun-cil, When a Child Reports a Crime,Washington, DC: 1992, p. 58.

4 Ford Foundation, p. 6.

5 Le Xuan Khoa and Diane Bui,"Indonesian Mutual AssistanceAssociation" in Bridging Cultures,Washington, DC (Publisherunknown), 1980.

6 National Crime Prevention Coun-cil, Talking with Youth about Pre-vention, Washington, DC: 1992, p.329.

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CHAPTER IIIAN INTRODUCTION TO LAW

ENFORCEMENT FOR THEREFUGEE COMMUNITY

This chapter is for anyoneassociated with refugeeresettlement and serves tointroduce the basic operation ofthe American criminal justicesystem. It outlines the issues ofrefugee victimization and howrefugees can work with lawenforcement to decrease theirchances of being targets ofcrime. It also providessuggestions for working moreclosely with American membersof the community to breakdown cultural barriers. In thiscontext, law enforcement caninclude members of city policedepartments; county sheriffs'offices; state police and/orhighway patrol offices; andfederal, regional or state officesof the Federal Bureau ofInvestigation (FBI), DrugEnforcement Administration(DEA), U.S. Customs, andDepartment of Alcohol,Tobacco and Firearms (ATF).

Changes in Policing in theUnited States

In the past decade, a "quietrevolution" within police

departments has resulted inchanges in policies and attitudesabout policing.1 Chief amongthese is an understanding of theimportance of a communitypartnership in controlling andpreventing crime. Policedepartments and sheriffs' officesare relying increasingly on non-police resources, such as neigh-borhood associations, othergovernmental offices, and evenyouth organizations, to createconditions that increase publicsafety. Law enforcement hasbegun to focus on solvingproblems and assisting thecommunity to learn to live moresafely, not just reacting to callsfor help.

Experts have documentedthat crime is heavily affected bysocial forces poverty, socialisolation, low education levels,lack of family stability andthat community based actionmust be the cornerstone of anyeffort to increase public safety.2

With this new emphasis on apolice-community

Law enforcement has begunto focus on solving problemsand assisting the community,not just reacting to calls forservice.

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With this new emphasis npolice-community partnershipcomes a wide range ofopportunities.

partnership comes a wide rangeof opportunities for cooperativepolice-refugee relations.Though not all policedepartments or sheriffs' officespractice community policing,most have established programsthat address personal safety, thefear of crime in the community,victim assistance, youthoutreach, crisis intervention,crime witnessing, and socialservice referral. These programslay the groundwork for moreeffective personal, face-to-facecontact between the communityand members of the policedepartment.

This philosophy of policing,also called problem-orientedpolicing, emphasizes creativeproblem-solving and crimeprevention strategies based onthe identified needs of thecommunity. Police who patrolneighborhoods on foot havegreater opportunity to talk to theresidents, become acquaintedwith local merchants, understandlocal problems and needs, andreduce the fear of crime simplyby their presence.

In Jersey City, the Inter-national Institute of New Jerseyworks with the policedepartment in a CrimeVictimization Project thatprovides crime prevention and

other information throughworkshops to Russian, Cuban,and Vietnamese refugees settledin the area.

In Long Beach, California,police are working to developclose ties to Latino andCambodian and other Asianpeople through a neighborhoodstorefront walk-in center thatoffers on-site translation ofimportant materials, communityeducation on crime prevention,and after-school activities forrefugee youth. They also reachout to ethnic groups throughhome visits, flyers distributedthroughout the neighborhood,and workshops and meetings onissues of concern to residents.

Refugees in any communitycan access police programs byrequesting that the departmentprovide printed materials thatdescribe community-basedservices. These materials can betranslated and distributed door-to-door or through schools,community businesses, or otherlocal agencies that serverefugees. It is critical, however,to ensure that any translationreflects the actual intent of thedocument by requiring that thematerials be "back translated" translated from the ethniclanguage back

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into English to cross-check forchanges or nuances in meaning.

If materials are not available,inquire if there is a communityrelations or crime preventionofficer who can meet with mem-bers of the community. Iflanguage is a barrier, perhaps amember of the refugeecommunity or the local MutualAssistance Agency can interpret.

An Overview of the CriminalJustice System

A police department's crimeprevention program and othercommunity services directlyaffect a refugee community,because police are the first pointof contact many refugees havewith the criminal justice system.It is important for a newcomer tothis country to understand howthe criminal justice systemworks. A well-translated guideto the criminal justice systemwould serve as a valuableresource for refugees newlysettled in the United States.

The U.S. criminal justicesystem is based on state andfederal laws that spell outacceptable and prohibitedbehavior. The systemguarantees all residents certainconstitutional and civil rights.Such rights include the right to

protection from physical abuseor threats from police to have anattorney present duringquestioning, to remain silentwhen questioned without anattorney present, to be heard bythe Court, to present evidenceon one's behalf, to cross-examine witnesses, and toexamine pertinent court files.There is a system of appeals tohelp ensure these rights.

In a question-and-answersession at a town meeting inAbbeville, Louisiana, the chiefof police and district court judgeclarified the following set ofrights for the Vietnamese audi-ence:

The [U.S.] Constitutionguarantees the right toprivacy. An officer cannotcome into your home unlesshe has a warrant or unlessyou invite [him] into yourhome. [T]here are only threeways a policeman can searchyour home:

1. If you invite him to doso (give your permission).

2. If a criminal has beenfollowed into the home.

3. If the police hear andbelieve that

Police are the first point ofcontact many refugees havewith the criminal justicesystem.

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Refugees need access totranslated documentation oftheir rights protected by law.

something inside the homeis illegal. [Then] they go tothe judge [who reviews theinformation]; [then] he signsa search warrant.

... No matter who is in yourhouse, you can only useforce (gun or any otherweapon) if that personcomes at you with aweapon.3

One of the most urgentcriminal justice needs ofrefugees is access to translateddocumentation of their rights asprotected by U.S. law. Thisinformation should explain aswell as cite those rights.

Law enforcement workcovers a wide variety of duties,including directing traffic andenforcing traffic laws toinvestigating accidents, teachingcrime prevention, conductinghome security surveys, workingwith community groups toheighten awareness of crime,and investigating serious crimes,such as burglary, assault, andmurder.

If a law enforcement officeris called to investigate a crime,the following sequence of eventsis common (although there canbe some variation from one partof the country to another):1. Someone commits a crime.

2. Someone else the victim,a witness, a bystander notifiesthe police department usually bycalling 9-1-1 as soon aspossible.

3. The responding officer(s)identifies him- or herself aspolice, as required by law, andmakes sure the victim is all right,or, if not, sees that he or she getsproper help.

4. The police department startsan investigation, which may beconducted by a different officer,to find out what happened,identifying witnesses, if any,and taking their statements andtheir names and addresses.

5. If the police have enoughevidence to identify a suspect,they obtain an arrest warrantfrom the court and arrest the sus-pect(s).

6. The facts of the case arepresented to the prosecuting(state or district) attorney whodetermines the appropriatecharges to be filed.

7. The accused faces apreliminary hearing where thevictim or witness may be askedto testify. The

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accused may be allowed to postbail to be released from jail.Bail is an amount of money setby the court to guarantee that thedefendant will return to court fortrial.

8. The accused stands trial; thevictim and/or witness is againasked to testify.

9. The jury or judge decides ifthe defendant is innocent orguilty, based on the evidenceand personal testimony of wit-nesses.

10. If guilty, the defendantreceives a sentence. He or shemay (or may not) have to go tojail, pay a fine or restitution(payment to the victim fordamages), and/or complete acommunity service project.

Note in the seventh itemabove, the U.S. criminal justicesystem also grants rights to theaccused by permitting a suspectto pay (or have paid on his orher behalf) a specified amount ofcash, set by the court, as securityfor being released from jail untilhe or she comes to trial in court.This is called bail; it may also becalled a security release. Thesuspect who does not show upfor trial forfeits bail. Sometimes,if the alleged criminal isconsidered to be a good risk and

not a physical threat to thecommunity, he or she can bereleased from custody on his orher own recognizance, withoutbail, until court proceedings.Other suspects are released underthe supervision of anotherperson or a program, such as adrug rehabilitation clinic.

If the defendant is convictedat trial, he or she has the right toappeal the conviction to a highercourt if procedural error, amisapplication of the law, or adenial of key rights is believedto have occurred.

If the crime is theft, thevictim may get the propertyback (if it is recovered) and/orreceive financial assistance. Thevictim generally has the right tosue the perpetrator for financialretribution in civil court.

The principles of lawenforcement may have beendifferent in those countriesrepresented by the refugees inthe community. One criticaldifference is that in the UnitedStates, many law enforcementofficers are trained to helppeople and the community withspecific needs, not just "catchthe bad guys." The police areresponsible for arrestingcriminals who are thenprocessed through the

The principles of lawenforcement may have beendifferent in those countriesrepresented by the refugees.

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Refugees (may) openthemselves to a wide array ofcrimes, many of which arenever reported.

criminal justice system, but theyalso help keep people frombeing victimized. The primaryjob of law enforcement is help-ing the community.

Most police and sheriff'sdepartments have crime anddrug abuse prevention programsthat aim to keep crime andsubstance abuse out ofneighborhoods. Theseprograms are supplemented byinstruction in areas such asdomestic violence and childabuse prevention, senior citizensafety, home security, andschool safety. Policedepartments are also an integralpart of Neighborhood and Busi-ness Watch programs, whichhave decreased the incidence ofburglary, vandalism, and othercrimes in many communities.

Crime Against Refugees:Avoiding Victimization

Although official crimestatistics do not accountseparately for victimizationamong refugees, it is valid toassume that newcomers havecertain vulnerabilities that makethem targets of criminals.Refugees who are uncertainabout the workings of theAmerican criminal justicesystem, who speak orunderstand little English, andwho may be reluctant to talkfreely with police authorities due

to experiences in their nativeland, open themselves to a widearray of crimes, many of whichare never reported.

Crime victimizes a com-munity in many ways:

• Residents fear and distrustpeople around them.Neighborhood anxiety andtension increase.

• Criminals take over publicspaces, such as parks,forcing residents back intotheir houses.

• The prices of goods andservices may increase tocover losses incurred due tocrimes.

• Local businesses may closeor move to a saferneighborhood, thusdecreasing opportunities foremployment and servicesavailable to localcommunities.

• Abandoned buildings attractfurther criminal activity drug sales, arson, andvandalism.

• The sense of communitycohesion and pride maydeteriorate as individualisolation increases.

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• Crime also interferes withcivic activity, such as wel-coming and supportingrefugees. It interferes with acommunity's ability to dealwith constructive change.

Groups or individualsassociated with refugeeresettlement - and refugeesthemselves can take steps todecrease their chances of refugeevictimization:

• Encourage communityfamiliarity and solidarity.Plan picnics, festivals, orother social events to drawneighbors out of theirhouses. Plan a wide rangeof opportunities sportsevents, concerts, summerday camps, art shows forneighbors to get to knoweach other. Neighbors whoknow each other watch outfor each other.

• Get in touch with lawenforcement and experi-enced community crimeprevention organizations.Ask them to come into thecommunity to makepresentations, such as howto report crimes andparticipate in courtprocesses.

• Organize a youth patrol teens who help clean up the

neighborhood, providebaby-sitting services, orassist elderly residents withroutine chores.

• Contact governmentagencies, such as housingand transportation, toaddress physical problems inthe neighborhood, such asabandoned cars,deteriorating housing, andpoor street lighting.

• Organize a citizens' com-mittee to design neigh-borhood strategies forincreased personal andneighborhood safety.

Victimization rates decreasewhen community members learnboth how to work together toprevent crime as well as how towork with the police whencrimes occur.

How Refugees Can Help LawEnforcement Protect Them

Refugees can contribute tothe safety and security of theirneighborhoods by learning towork in an effective partnershipwith law enforcement officials.They can learn how to use crimeprevention skills and how toreport suspicious activities to thepolice department. Documentsthat explain the following stepscan be translated

Refugees can contribute to thesafety and security of theirneighborhoods.

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Refugees will find that thereare people and organizationswho share common interestswith them.

into the native language o therefugees in the community.

• Anyone witnessing orexperiencing a crime shoulddo the following:

• Call the police (in mostcommunities, 9-1-1)immediately.

• Try to stay calm, eventhough the experience maybe upsetting.

• Tell the police what hap-pened, where it happened,and the caller's name.

• If anyone is hurt, ask formedical assistance.

• Write down everythingabout the crime to tell thepolice.

• Try to remember as manydetails as possible, such asthe scene of the crime,number and description ofsuspects (age, sex, color ofhair, height, weight,distinguishing features) ordescription of criminal'svehicle (make, model, color,license number) and whichdirection it traveled when itleft the scene.

• If asked to make a complaintor testify in court, do so.

Cooperation might keep thecriminal from victimizingsomeone else.

• If asked to identify a suspectin a lineup, do the bestpossible job, and rememberthat the suspect can not seethe people looking at him.

Joining Groups: Becomingan Involved CommunityMember

When refugees first arrive intheir new community, they arefaced with the immediate chal-lenges of learning a newlanguage, adjusting to a newsocial atmosphere, seekingemployment, and establishing adaily routine that fits into thestandards and traditions of a newculture. This period ofadjustment may take manymonths or longer but atsome point, the initial shock ofresettlement will be replaced bya feeling of familiarity andaccommodation.

While going through thisperiod of adjustment, refugeeswill find that there are peopleand organized groups who sharecommon interests with them inneighborhood improvement,community safety, recreationalactivities, political issues envi-

55

ronmental concerns, andeconomic progress, among otherthings. These groups are able tobring support and power to anissue that individuals alonecould not. They work for thebetterment of the community inmany ways. Many have fundsthat enable the group to reach itsgoals more easily.

By becoming active inefforts to improve theircommunity, refugees find theirconcerns get greater attentionfrom the community.Involvement in local groupssuch as neighborhoodassociations, schoolorganizations, service clubs, andchurch-related groups bring theirrefugee interests and concerns toa wider audience, resulting inpartnerships for positive action.

For example, if members ofa Polish refugee group inChicago find that there areinsufficient business networksthat include Polish merchants,they can join a neighborhoodmerchants' association thatworks closely with the Chamberof Commerce. Through thislink, the Polish merchants canbring their concerns to the atten-tion of the Chamber, requestinginclusion in Chamber-sponsoredevents, such as neighborhoodbusiness breakfasts and

seminars. As a result, Polishrefugees become acquaintedwith other business owners andare exposed to a wider range ofeconomic opportunities.

Using Existing Systems ToEducate Others

Part of the challenge forrefugees is to learn about life inthe United States. The otherpart is to teach Americans aboutthe refugees' native cultures.This two-way educationalprocess is critical for mutualunderstanding and trust.

Many avenues for culturaleducation already exist. Thereare ready-made audiences inschools, special interest groups,law enforcement-sponsoredevents, religious institutions,neighborhood organizations,civic groups, businesses, andyouth clubs. Newcomers canshare information about nationalhistory, religious traditions,holidays, cooking styles,literature, music, or art.

Approaching a group tooffer cultural education can be assimple as making a phone call orwriting a letter. Find out thename of the person in charge of

By becoming active in thecommunity, refugees find thattheir concerns get greaterattention.

The two-way educationalprocess is critical for mutualunderstanding and trust.

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scheduling special events. Askif there are people in the groupinterested in learning aboutanother culture. Tell thescheduling chairman:

• the subject of the talk is(probably something thatwould be of specific interestto them, such as apresentation on schooling inthe refugee's home countryto an assembly at the localelementary school);

• when the talk can be given(ask when it would beconvenient for them);

• how long the presentationwill take (this will dependon the age of the audience;younger groups tend tobecome restless during longpresentations);

• whether special equipment,such as a microphone, slideprojector, blackboard, orrecord player will be needed;and whether materials willbe handed out.

• whether materials will behanded out.

A brief, one-time presen-tation may expand to become ayearly or more frequent event for all the students at thehigh school, or for a local artmuseum association, or for agroup of music historians. Find

out how many and who theaudience will be. Tailor thepresentation to the audience'sinterest, bring artifacts orexamples, and leave time toanswer questions.

Successful Bridge-Crossing: ASummary of Actions RefugeesCan Take

• Plan a neighborhood picnicor other outdoor event to getto know the people who livenext door. Remember toinvite the police officer(s)assigned to the area.

• If bilingual, offer to serve asa translator and/or interpreterfor the police department.Assist in translatingimportant legal documentsand crime and drug preven-tion materials for distributionto the refugee community.

• Learn how to be a goodwitness and report crime.

• Ask the police department todemonstrate crimeprevention and personalsafety techniques to residentsof the neighborhood ormembers of a temple.

• If time permits, join com-munity groups, such as theschool's Parent-

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Teacher Association, theneighborhood association orblock group, the Boy or GirlScouts, a homemakers' club.If work or anothercommitment conflicts withjoining, find out aboutparticipating in a one-timespecial event, such as aweekend cultural fair orgroup picnic.

• Plan a special event at homeand invite new friends or co-workers to share thecelebration. Cook nativefoods, or demonstrate ritualclothing or festival activities.

• Arrange talks about refugeenative cultures to schoolchildren, communityassociations, coworkers,religious groups, or specialinterest organizations.

ResourcesInternational Association of Chiefs of

Police515 N. Washington StreetAlexandria, Virginia 22314-2357703-836-6767

International membershiporganization of law enforcementexecutives that develops policy,offers advocacy and training, andpublishes information on the fullrange of policing issues. Canprovide law enforcementdocuments and legal literature fortranslation.

Police Executive Research Forum2300 M Street, NW, Suite 910Washington, DC 20037202-466-7820

National membership organizationdedicated to improving policingand advancing professionalismthrough research and involvementin public policy debate. Providesan extensive number of publi-cations on a wide range of lawenforcement topics, such ascommunity policing.

National Organization for VictimAssistance

1757 Park Road, NWWashington, DC 20010202-232-6682

NOVA works to achieverecognition and implementation ofvictims' rights and services.Provides training, technical assis-tance, and direct services to crimevictims. Maintains an informationclearinghouse on issues related tovictimization.

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Office for Victims of CrimeOffice of Justice ProgramsU.S. Department of Justice633 Indiana Avenue, NWWashington, DC 20531202-307-5983

Federal office addressing the needsof crime victims. Recommendssystem reforms for improving vic-tim treatment and provides nationalleadership by administering grants.Supports training, forums,publications, and task forces thathelp states improve their responseto crime.

National Victim Center2111 Wilson BoulevardSuite 300Arlington, Virginia 22201703-276-2880

Dedicated to reducing theconsequences of crime on victimsand society by promoting victims'rights and victim assistance, theCenter offers training and technicalassistance, a quarterly newsletter,legislative database, toll-freeinformation and referral, and acrime victim civil litigation referralservice.

Immigration and Naturalization ServiceU.S. Department of Justice4251 Street, NWWashington, DC 20536202-616-7762

Administers U.S. immigration andnaturalization laws. Provides,through communityvoluntaryagencies, training and

instruction that facilitateimmigrants' compliance with legalrequirements for residency andcitizenship.

National Institute for DisputeResolution

1726 M Street, NW, Suite 500Washington, DC 20036202-466-4764

Promotes development of fair,effective, and efficient conflictresolution processes and programsin new arenas locally, nationally,and internationally. Stimulatesinnovative approaches toproductive resolution of futureconflict. Programs includeinitiatives in public policy, youth,quality of justice, communities,and education.

National Sheriffs' Association1450 Duke StreetAlexandria, Virginia 22314703-836-7827

Sponsors a number of programsincluding Neighborhood Watchand ational Sheriffs' Institute.Conducts victim assistanceprogram, provides training,research, technical assistance, andpublications. Offers consultationand technical assistance in severalareas. Partners with AmericanAssociation of Retired Persons andInternational Association of Chiefsof Police in Triad programassisting the elderly in preventingcrime.

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Office of Juvenile Justice andDelinquency Prevention

Office of Justice ProgramsU.S. Department of Justice633 Indiana Avenue, NWWashington, DC 20531Juvenile Justice Clearinghouse:800-638-8736

The central federal agency forjuvenile justice and delinquencyprevention matters, OJJDPconducts research, fundsdemonstration programs, and pro-vides training and technicalassistance. Administers stateformula grant program;disseminates information andpublications.

American Bar AssociationSection on Dispute Resolution1800 M Street, NW, Suite 209Washington, DC 20036202-331-2258

Sponsors more than 400 disputeresolution programs across thenation. Provides a clearinghousefor conflict mediation informationand sponsors a program thatencourages law off ices to adoptlocal high schools and assist themin implementing mediationprograms.

Administration on Children ndFamilies

U.S. Department of Health andHuman Services

370 C Street, NW, Room 2428Washington, DC 20201202-205-8024

Oversees the Youth Gang DrugPrevention Program, whichconducts community-based,comprehensive, coordinatedactivities to reduce and prevent theinvolvement of youth in gangs thatengage in illicit drug activities.

National Association of Town Watch Post Off ice Box 303 7 Wynnewood Road, Suite 215 Wynnewood, Pennsylvania 19096 610-649-7055

Non-profit membershiporganization that sponsors theNational Night Out, an annualneighborhood event thatencourages community residents toget to know each other. Dedicatedto the development and promotionof organized community crime anddrug prevention activities.

Notes

1 "Police and Communities: TheQuiet Revolution," Perspectiveson Policing, No. 1. Washington,DC: US Department of Justice,1988.

2 Dennis P. Rosenbaum, "Commu-nity Crime Prevention: A Reviewand Synthesis of the Literature,"Justice Quarterly, No. 5, 1988, pp.323-395.

3 Durwood Conque, Judge 15thJudicial Court of Louisiana andMichael D. Hardy, Chief of Police,City of Abbeville, Louisiana, n.d.

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AN OPTIMISTIC WORD

The United States, like othercountries, has had to addressproblems associated withstrained relations betweencultures. Unfortunately,sometimes this strain has led toviolence by American citizensand by newly-settled residents.

But most Americans andmost leaders of refugee groupsare intolerant of bias-relatedcrime, and many organizationsfocus on building harmony andhealing between races.Communities highlighted in thisbook - while not completely freeof tension between cultures - arebringing newcomers andestablished residents together.

The 1993 study by the FordFoundation urges that the U.S.promote opportunities forresettled refugees to interact withestablished residents "in waysthat build meaningful sharedinterests and goals whilemaintaining distinct identities."1

Identify shared interests:Diverse cultures come togethersuccessfully to improve thequality of life in theircommunity. Focus attention onunifying activities that requirethe energies and talents of allpeople to reach a shared goal.

Support local initiatives:Communities should supportpolicy initiatives that bringtogether newcomers andestablished residents. Localinitiatives should includeeducation, communitydevelopment, special events(such as festivals and inter-ethnicconferences), and day-to-dayactivities.

Participate in the politicalarena: Refugees who becomecitizens should become active inlocal political processes. Thestarting point is voting in localelections, but active involvementin the promotion of specificcommunity issues, such aseconomic policy, communitysafety, and environmentalimprovement, can further lead tobridge building and strengthen-ing.

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Emphasize languagetraining: Language barriers area major source of tensionbetween cultures. Newcomersshould have easy access toEnglish language instruction,but Americans should also striveto expand their proficiency inother languages.

Strengthen local organi-zations: Existing organizationsneed to analyze their resourcesand goals in light of the newdiversity in communities in the1990s. These groups need toeliminate exclusionary policiesand practices and to developoperational policies that makethe group more flexible andaccessible.

Identify and train leaders:Trained leaders and organizersfrom both cultures are critical tosuccessful efforts in bringing

cultures together. Leaders musthave the ability to communicatemeaningfully with a variety ofindividuals. In manycommunities, women andteenagers have naturallyassumed the role of leadersthrough their day-to-dayinteraction with neighbors.

As the Ford Foundationreport concludes, findinganswers to problems that arisewhen refugees and othernewcomers from differentcultures settle in the U.S. can bechallenging. But manycommunities across the countryhave taken positive steps toaccommodate them, and theirefforts are producing positiveresults.

Notes1 Ford Foundation, page 6.

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HELPFUL LISTS

Office of Refugee ResettlementSites

Khmer Community of Seattle-KingCounty

10025 16th Avenue, SWSeattle, Washington 98146206-762-3922

Services available: Residential andbusiness workshops on crimeprevention, translation andinterpretation, tutoring, group andindividual counseling, socialservices.

Ethnic populations: Vietnamese,Cambodian, and Laotian

•

Boston Police Department40 Gibson StreetDorchester, Massachusetts 02122617-343-4524 or 436-7057

Services available: Court translation,classroom instructors, communityorganization, and gang prevention.

Ethnic populations: African American,Spanish, Cape Verdian,Vietnamese

•

Cambodian Community ofMassachusetts, Inc.

375 Broadway, Room 208Post Office Box 6013Chelsea, Massachusetts 02151617-884-8004

Services available: work in cooperationwith local law enforcement to helpmissing, runaway, and abusedchildren and victims of domesticviolence; gang prevention; courttranslation; domestic violenceprograms; on-call translation forpolice department.

Ethnic population: Cambodian

•

Elgin Young Women's ChristianAssociation (YWCA)

220 East Chicago StreetElgin, Illinois 60120708-742-7930

Services available: Translation,interpretation, bilingual counseling,legal system information, domesticviolence aid, workshops on gangsand substance abuse.

Ethnic populations: Laotian, Hispanic,Ethiopian

•

Lowell Police DepartmentCommunity Relations Bureau

50 Arcand DriveLowell, Massachusetts 01852508-937-3208

Services available: Civil rights program,gang awareness, Street Smartsprogram, Neighborhood CrimeWatch, violence prevention;school,

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business, and civic group presentations,tours of police station, residentialprograms.

Ethnic populations: Cambodian, Laotian,Vietnamese, Thai, Hispanic, Polish,Greek, Indian, Portuguese, French,Chinese

•

Migration and Refugee Services1408 Carmel AvenueLafayette, Louisiana 70501318-261-5535

Services available: On-site translation forpolice, victim assistance, court translation,educational seminars.

Ethnic population: Vietnamese

•

Portland Police Bureau1111 SW 2nd AvenuePortland, Oregon 97204503-823-4106

Services available: Multi-cultural advisorycouncil, 24-hour interpreting service,gang prevention, crime prevention,summer youth activities.

Ethnic populations: Vietnamese, Chinese,Cambodian, Laotian, Mien, H'mong

•

Lincoln Police Department233 South 10th StreetLincoln, Nebraska 68508402-441-7245

Services available: Translation for police,presentations on crime prevention and

victim services, youth group, RefugeeTask Force,

Vietnamese videos on public access channel.

Ethnic populations: Vietnamese, Russian,Laotian, Cambodian

•

International Institute of New Jersey880 Bergen AvenueJersey City, New Jersey 07306201-653-3888

Services available: Ethnic advocacy, crimevictim counseling, employment services,information and referral, on-siteinterpreting for police, court interpreting.

Ethnic populations: Cuban,Vietnamese,Russian

•

Willows Police Department201 North Lassen StreetWillows, California 95988916-934-3456

Services available: Criminal justice agencydocuments translation, gang prevention,Southeast Asian Task Force, policeinterpretation on- and off-site,community crime prevention, referrals,counseling

Ethnic populations: H'mong, Laotian

•St. Rita's Asian Center2342 Andrews AvenueBronx, New York 10468718-295-8175

Services available: Court translation, on-siteinterpretation for police, after schoolactivities, recreation program, victimassistance.

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Ethnic populations: Vietnamese, Cambodian,Amerasian, Ethiopian

•

Inter-cultural Mutual Assistance Association16 SW 7th AvenueRochester, Minnesota 55902507-289-5960

Services available: Education, counseling,recreation, community service, mediation,employment services.

Ethnic populations: Laotian, Cambodian,H'mong, Vietnamese

•

Cambodian Association of America2501 Atlantic AvenueLong Beach, California 90806310-988-1863

Services available: Storefront walk-in center,community outreach through home visitsand workshops, on-site translation,community education, after-schoolactivities.

Ethnic populations: Latino, African-American,Cambodian, Laotian, H'mong, Korean,Vietnamese

•

Westminster Police Department8200 Westminster BoulevardWestminster, California 92683714-898-3315, ext. 591

Services available: Business Watch,Neighborhood Watch, outreach meetings,crime prevention presentations, resourcecenter, translation.

Ethnic populations: Vietnamese, Hispanic

•

St. Paul Police DepartmentA Community Outreach Program (ACOP)100 East 11th StreetSt. Paul, Minnesota 55101612-488-9272

Services available: Crime prevention,counseling, after school activities,tutoring, Southeast Asian Advisory Board,advocacy and referral, translated material,victim services, 24-hour interpreterservices, block clubs, athletic clubs, gangprevention activities, crisis intervention.

Ethnic populations: Cambodian, H'mong,Russian, Romanian, Ethiopian, Latino,Laotian, Vietnamese, Afghan

•

Haltom City Police Department4916 East Belknap StreetHaltom City, Texas 76117817-834-3456

Services available: crime prevention, 24-hourinterpreter service, advocacy and referral,ESL classes, and gang preventionactivities.

Ethnic populations: Vietnamese, Laotian,Cambodian

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State Refugee Coordinators

ALABAMAState Refugee CoordinatorDepartment of Human ResourcesSouth Gordon Persons Building50 Ripley StreetMontgomery, Alabama 36130205-242-1773

ALASKAAlaska Refugee Outreach2222 East TudorAnchorage, Alaska 99507907-561-0246

ARIZONARefugee Program CoordinatorDepartment of Economic SecurityCommunity ServicesAdministrationPO Box 61231789 West Jefferson, 3rd FloorPhoenix, Arizona 85005602-542-6600

ARKANSASDivision of Human ServicesDonaghey Building, Slot 1225PO Box 1437Little Rock, Arkansas 72203501-682-8263

CALIFORNIADeputy DirectorDepartment of Social Services1255 Imperial Avenue, Suite 751San Diego, California 92101619-338-2799

COLORADOState Refugee CoordinatorDepartment of Social ServicesRefugee and Immigrant Services

Program789 Sherman, Suite 250Denver, Colorado 80203303-863-8211

CONNECTICUT

State Refugee CoordinatorSpecial Programs DivisionDepartment of Social Services1049 Asylum AvenueHartford, Connecticut 06105203-424-5878

DELAWARERefugee CoordinatorDivision of Economic ServicesDepartment of Health and Social

Services1901 North DuPont HighwayConnecticut BuildingNew Castle, Delaware 19720302-577-4453

DISTRICT OF COLUMBIARefugee State CoordinatorOffice of Refugee ResettlementDepartment of Human Services645 H Street, NE, Room 4001Washington, DC 20002202-724-4820

FLORIDARefugee Programs AdministratorDepartment of Health and

Rehabilitative Services1317 Winewood BoulevardBuilding E, Room 423Tallahassee, Florida 32399-0700904-488-3791

GEORGIAState Refugee CoordinatorDFCS/DHRCommunity Programs Unit2 Peachtree Street, NW12th Floor, #402Atlanta, Georgia 30303-3180404-657-3428

HAWAIIOffice of Community Service335 Merchant Street, Room 101Honolulu, Hawaii 96813808-586-8675

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IDAHOState Refugee CoordinatorBureau of Family Self SupportDepartment of Health and Welfare450 West State Street,7th Floor PO Box 83720Boise, Idaho 83720202-334-0980

ILLINOISState CoordinatorRefugee Resettlement Program527 South Wells, Suite 500Chicago, Illinois 60607312-793-7120

INDIANARefugee Co-Coordinators402 West Washington Street#W-363Indianapolis, Indiana 46204317-232-4919

IOWABureau of Refugee Programs1200 University Avenue, Suite DDes Moines, Iowa 50314-2330515-283-7904

KANSASRefugee Resettlement CoordinatorDepartment of Social and

Rehabilitation ServicesSmith-Wilson Sate Office Building300 SW Oakley StreetTopeka, Kansas 66606913-296-6977

KENTUCKYState Refugee CoordinatorDepartment for Social ServicesCommonwealth of Kentucky275 East Main Street, 6-WFrankfort, Kentucky 40621502-564-6750

LOUISIANAState Refugee CoordinatorOffice of Community ServicesDepartment of Social Services2026 Saint Charles, 2nd FloorNew Orleans, Louisiana 70130504-568-8958

MAINEState Refugee CoordinatorDivision of Purchased ServicesDepartment of Human Services221 State House Station 11Augusta, Maine 04333207-287-5060

MARYLANDState Refugee CoordinatorMaryland Office for New AmericansDepartment of Human Resources311 West Saratoga StreetRoom 222Baltimore, Maryland 21201410-767-7021

MASSACHUSETTSOffice for Refugees and ImmigrantsChina Trade CenterTwo Boylston StreetThird FloorBoston, Massachusetts 02116617-727-7888

MICHIGANRefugee Assistance DivisionDepartment of Social ServicesMichigan Plaza1200 Sixth Street, Suite 462Detroit, Michigan 48226313-256-1740

MINNESOTAState Refugee CoordinatorDepartment of Human ServicesSelf-Sufficiency Program Division444 Lafayette RoadSt. Paul, Minnesota 55155-3837612-297-3210

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MISSISSIPPIState Refugee CoordinatorPlacement Services

Department of Human ServicesPO Box 352Jackson, Mississippi 39205601-359-4947

MISSOURIDivision of Family ServicesRefugee Assistance ProgramBroadway State Office BuildingPO Box 88Jefferson City, Missouri 65103314-751-3823

MONTANAState Refugee CoordinatorDepartment of Social WorkRankin HallUniversity of MontanaMissoula, Montana 59812406-243-2336

NEBRASKACoordinator of Refugee AffairsDepartment of Social Services

5th FloorPO Box 95026301 Centennial Mall SouthLincoln, Nebraska 68509402-471-9200

NEVADAState Refugee CoordinatorCatholic Community Services1501 Las Vegas Boulevard NorthLas Vegas, Nevada 89101702-383-8387

NEW HAMPSHIREState Refugee CoordinatorGovernor's Office of Energy and

Community Services57 Regional DriveConcord, New Hampshire 03301603-271-2611

NEW JERSEYState Refugee CoordinatorDepartment of Human ServicesDivision of Youth and FamiliesCapital Center, 7th Floor50 East State Street, CN 717Trenton, New Jersey 08625-0717609-984-3154

NEW MEXICOState Refugee CoordinatorDepartment of Human ServicesISD-CASPO Box 2348, Pollen Plaza2009 South Pacheco StreetSanta Fe, New Mexico 87504505-827-7248

NEW YORKState Refugee CoordinatorDepartment of Social Services40 North Pearl StreetAlbany, New York 12243-0001518-432-2510

NORTH CAROLINAState Refugee CoordinatorFamily Services SectionDepartment of Human Resources325 North Salisbury StreetRaleigh, North Carolina 27603919-733-4650

NORTH DAKOTAState Refugee CoordinatorChildren and Family Services DivisionDepartment of Human Services600 East Boulevard Avenue,

Judicial WingState Capitol, 3rd FloorBismarck, North Dakota 58505701-224-4934

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OHIOState Refugee CoordinatorDepartment of Human Services65 East State Street5th FloorColumbus, Ohio 43215614-644-6140

OKLAHOMARefugee Program SupervisorDepartment of Human ServicesPO Box 25352Oklahoma City, Oklahoma 73125405-521-4091

OREGONState Refugee CoordinatorDepartment of Human Resources500 Summer Street, NE2nd FloorSalem, Oregon 97310-1013503-945-6099

PENNSYLVANIAState Refugee ResettlementProgram ManagerDepartment of Public WelfarePO Box 26751401 North 7th StreetBertolino Building, 2nd FloorHarrisburg, Pennsylvania 17110717-783-7535

RHODE ISLANDState Refugee CoordinatorDepartment of Human Services275 Westminster Mall, 5th FloorProvidence, Rhode Island 02893401-277-2551

SOUTH CAROLINAState Refugee Coordinator for Refugee

andLegalized Alien ServicesDepartment of Social ServicesPO Box 1520Columbia, South Carolina

29202-1520803-737-5941

SOUTH DAKOTARefugee Resettlement CoordinatorDepartment of Social ServicesRichard F. Kneip Building7800 Governors DrivePierre, South Dakota 57501-2291605-773-3165

TENNESSEEState Refugee CoordinatorDepartment of Human ServicesCommunity Services14th Floor400 Deaderick StreetNashville, Tennessee 37248615-741-5949

TEXASExecutive DirectorTexas Office of Immigration and

Refugee AffairsDepartment of Human Services9101 Burnet Road, Suite 216Austin, Texas 78758512-873-2400

UTAHState Refugee CoordinatorDepartment of Human Services120 North 200 West, Room 325Salt Lake City, Utah 84145-0500801-538-4092

VERMONTState Refugee CoordinatorAgency of Human Services103 South Main StreetWaterbury, Vermont 05671-0204802-241-2223

VIRGINIAState Refugee CoordinatorDepartment of Social ServicesOffice of Newcomer Services730 East Broad StreetRichmond, Virginia 23219-1849804-692-2218

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WASHINGTONState Refugee CoordinatorBureau of Refugee AssistanceDepartment of Social and Health

Services1009 College StreetPO Box 45420Olympia, Washington 98504206-438-8385

WEST VIRGINIARefugee CoordinatorDepartment of Human Services1900 Washington Street,EastCharleston, West Virginia 25305304-558-8290

WISCONSINState Refugee CoordinatorDepartment of Health and Social

ServicesPO Box 7935131 West Wilson StreetRoom 802Madison, Wisconsin 53707608-266-0578

WYOMINGState Refugee CoordinatorDivision of Youth ServicesDepartment of Family ServicesHathaway Building, Room 352Cheyenne, Wyoming 80002307-777-6081