Ruia Research Report_2013

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Ruia Research Report_2013_Final Draft

PROJECT Ruia Whakatauki

PROJECT SPONSOR Safe Tairawhiti Community Trust

PROJECT MANAGER Manu Caddie

DOCUMENT Phase One: Research Report

Date 2013

Author Shona Munro

Disclaimer

While every attempt has been made to ensure that this report accurately reflects the current gang situation in

Tairawhiti, and present viable options for solution-based actions, the writer recognises that there are bound to be

many omissions and that this report will not be a panacea for all things related to criminal and gang behaviour in

Tairawhiti.

Some of the limitations of this report are time-frames, availability of information from organisations, and the

limitations of the writer’s own understanding and experience in this sector.

The writer has based this report on information provided by other experts in the field and acknowledges that there

is still much to be discovered and discussed to effectively address the criminal and violent gang behaviour that

negatively impacts on our community.

1. Executive Summary

The Ruia project was established in 2012. The aim of the project is to “comprehensively address and

change the perennial problems of crime and anti-social behaviour associated with gangs in

Tairawhiti”. The project takes a phased approach. This report is the final deliverable for phase one –

research.

This phase included:

- Literature Review (completed by Gilbert & Newbold 2007)

- Interviews with gang members, ex-gang members, partners of gang members, community

groups, NGOs, Iwi and Police, and

- Survey of Employers

There are a variety of “definitions” used in relation to gangs. This report focuses on “criminal gangs”

who are involved in crime, violence and/or anti-society activities.

It is noted in several places throughout the report that in Tairawhiti gangs are often intergenerational

and tied to whanau and therefore not specific to a particular age-group. It also means that any

programme or service targeted at gang behaviour needs to take into consideration impact on the

wider whanau and whanau ties and relationships.

Both international and New Zealand research agree that a multi-pronged, community-wide approach

is needed to effectively resolve unwanted gang behaviour. A multi-pronged approach would include

prevention, intervention and suppression activities working together for a collective community impact.

Another key finding from research, including interviews, was that education and employment

opportunities are fundamental in addressing the issues and strategies to improve these areas need to

be at the centre of any collaborative strategy or action plan.

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The research phase highlighted that there is still a lot of work to do to get all parts of the machinery

working effectively together and it will take a lot of discussion, good will and strong relationships

between partners if the desired outcomes are to be achieved.

The key findings and recommendations are set out in Section 6 of this report.

2. Introduction

The Ruia Project (Ruia) was initiated as a result of a report that was presented to Gisborne District

Council (GDC) in March 2011 (Council’s Role in Relation to Gangs: 11/108). This led to a discussion

at the Safe Tairawhiti Community Trust (STCT) meeting in April 2011 on how STCT and GDC could

work together to address gang issues in the district. In May 2011 GDC Councillors passed a

resolution that Council did not have a role in this work and that Council’s participation in STCT was

Council’s contribution to any work that was to be done in relation to addressing gang related issues in

Tairawhiti.

Following this meeting, and the development of the STCT Safe Community Strategy, a multi-agency

forum was established to lead and coordinate a project on Gang Intervention under the “Crime

Prevention” work stream of STCT which is led by NZ Police.

In November 2011 the multi-agency group met to discuss the best approach to identifying and

addressing gang related issues in Tairawhiti. This led to the development of the Gang Prevention

Network whose purpose is:

“a group of committed partners who have come together to develop solutions, interventions and

prevention strategies to reduce gang related violence and crime in Tairawhiti” (Gang Prevention

Network Terms of Reference)

The identified outcomes for this group are to develop:

- a Gang Prevention Plan which identifies multi-agency solutions, interventions and prevention

strategies that reduce gang related violence and crime in Tairawhiti

- timely, rapid and coordinated responses to gang related activities and violence

- regular assessments to monitor inputs, outputs and outcomes for activities and collaborations

- develop a plan to increase visibility and awareness in order to better advocate for better

outcomes.

The Gang Prevention Network met in November 2011 and agreed to initiate the Gang Transformation

Project. After some consultation it was decided to rename the project “Ruia” which holds two

meanings – one to strip away or shake up something. The second is to sow, plant seed. The aims of

this project are to shake up and strip away criminal and violent gang behaviour and to sow/plant

seeds for better options for youth who are at risk of being drawn into criminal and violent gangs and

therefore the name Ruia seems appropriate.

The purpose of this project is to “comprehensively address and change the perennial problems of

crime and anti-social behaviour associated with gangs in Tairawhiti”.

The Ruia project has taken an evidence-based approach and has three key phases

- Phase One: Research and Analysis

- Phase Two: Solution Strategies and Planning

- Phase Three: Implementation of Solutions Strategies and Plans

This report is the output from Phase One: Research and Analysis.

2.1. Ruia Project: Phase One – Research and Analysis

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The Ruia Project: Phase One has been aimed at collecting, analysing and evaluating data and

research on gang activity in Tairawhiti, current and proposed programmes for transformation/

intervention, and engagement of relevant stakeholders and communities.

The Phase One work has included a Literature Review and interviews with key local stakeholders

including gang members, prospects, whanau, social service providers, educators, employers, Police,

Iwi and resident’s associations.

The Literature Review was carried out in May 2012 by Jarrod Gilbert, Independent Research

Solutions and Greg Newbold, School of Social and Political Sciences – University of Canterbury.

Interviews with a variety of stakeholders were conducted by Joshua Wharehinga in May 2012 to

August 2013.

In addition, a survey on employing gang and ex-gang members was carried out by Manu Caddie in

early 2013.

The primary output from this phase of the project is this report which provides recommendations on

options for solution strategies and actions. The project was approved for implementation in February

2012 by the Gang Prevention Network.

3. Literature Review – Summary

The following section is a summary of the work completed by Gilbert & Newbold: 2007.

The Literature Review was commissioned by STCT in May 2012. The purpose of the Literature

Review was to identify, review and summarise national and global information related to:

- Definition of gangs

- Common needs of gang members, and

- Effective control strategies

It is noted in the preface to the Literature Review report that there is very limited research and data

available in relation to the New Zealand environment, and therefore much of the information is based

on material from overseas studies and research. Limitations in using overseas data include:

- Mostly focussed on urban environments whereas Tairawhiti is predominately a provincial and

rural environment

- Often related to ethnic diversity and does not address specific context of a Maori culture set

against a background of British colonialism and dominance.

Despite these limitations the data from overseas reports, particularly from Canada, Australia, United

States and UK still provide valuable insights and lessons that we can take on board as we look to

address the gang related issues within the local context.

3.1. Definition of “Gangs” in Tairawhiti context

Definitions of gangs are difficult but important. The way gangs are defined influences the way they are

viewed and how they might be responded to. Different organisational definitions of “gangs” are:

Incipient gang

A group of individuals with a loose structure, few formal rules, a common identifier (colours, a name,

hand signals etc.), whose activities are not primarily criminal but involve (mostly) petty crimes, and

who see themselves as a gang and are identified as such by others in the community.

Gang

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A structured group (of five or more people) that maintains an exclusive membership marked by

common identifiers and formal rules that supersede the rules of the state.

Criminal gang

A structured group (of five or more people) that maintains an exclusive membership marked by

common identifiers, formal rules that supersede the rules of the state, and which has an

organisational focus on profit through crime.

The focus of this report and its recommendations is primarily on criminal gangs who are involved in

petty crime and/or violent and anti-society activities. It should be noted here that criminal gangs in

Tairawhiti are often intergenerational in nature which means that a whanau-based approach is

needed to address the issues as they do not rest at only a youth or adult level.

The basic premise is “harm to none” – if a group of people form a gang but are not involved in criminal

and/or violent or anti-society activity there is no reason to change or transform their association and

activities.

3.2. Common Needs of Gang Members in Aotearoa and Tairawhiti

There are a multitude of factors that contribute to participation in gang culture. These can be:

- Social factors

- Psychological factors, and/or

- Risk factors

Social Factors

- Repression of gang activity in a negative manner results in gangs becoming more cohesive,

alienated and insulated against mainstream community (The Gang: Thrasher, 1972)

- Social inequality and depravation result in frustration and a become a driver for young people

to join gangs since they are unable to attain social status through legitimate ways (Anomie

Theory)

- Criminal behaviour, like conformist behaviour, is learned through social interaction and

therefore a culture of crime can be passed on intergenerationally (Cultural Transmission

Theory)

Most social theory agrees that “the increasing urban underclass is the foremost cause of

…proliferation of gangs and the most likely predictor of its continuation” (Hagedorn, Short & Klein,

1995)

Most of the research on the influence of social factors on gang participation comes out of the United

States and is based on urban gang culture.

Psychological Factors

There is also a fundamental socio-psychological need that provides an allure to potential gang

members. Carlie (2002) identified that gang membership fulfils:

- Physiological needs (shelter, food, sex)

- Safety needs (security and protection from physical and emotional harm)

- Belongingness

- Esteem through autonomy, respect, achievement and status

- Self-actualisation through the opportunity to fulfil one’s potential, particularly when the usual

social structure limits or puts barriers in the way of the person due to education or social

challenges

These needs can be seen as push and pull factors. The push comes from the wider community

through family instability, failure at school and in the “social norm”, and poor employment prospects.

The pull comes from allure of prestige, thrills, excitement, power, belonging, and protection.

Risk Factors

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In addition to the social and psychological factors, there are a number of risk factors that may

contribute to a person’s inclination to join a gang. These can be grouped as:

- Individual risk factors: previous delinquent behaviour, negative peer associations, low self

esteem

- Family risk factors: poor family management, violent home/ parents/ siblings, abuse and

maltreatment

- Community risk factors: increased levels of community crime, gang presence in the area, lack

of social, economic and recreational activities, high drug trafficking

- School risk factors: lack of attachment to school, negative teacher perception of student, low

achievement, learning disabilities.

Gang participation is not an inherent response to any one or even several of these factors, but those

who can be identified as having more than a couple of these influencing factors in their profile are

more likely to be drawn to gangs than those who do not. In particular, those facing multiple social

issues (multiple marginality) would be at most risk.

3.3. Solution Strategies

The strategies that are commonly used to approach reducing or eliminating criminal and/or violent

gang behaviour have traditionally been grouped into three main areas:

- Prevention: looks to discourage at-risk youth from joining gangs

- Intervention: works with gang members to reform, rehabilitate, and channel existing or fringe

members away from crime into more positive pursuits

- Suppression: based on concept of deterrence where problem is seen as one for the police

rather than the community

Prevention

Programmes targeted at prevention include improving conditions for youth, early childhood

programmes, school-based programmes, youth clubs and after school programmes. The key is that

education programmes need to start very early in the child’s life to have any significant impact and be

continuous throughout their youth.

Prevention programmes take time to show any impact and are unlikely to be effective if the underlying

causes of gang membership remain. (Esbensen, Freng, Taylor, Peterson & Osgood, 2002: p.162)

However, a positive impact is more likely if run as part of a comprehensive programme along with

involvement from school, community and whanau, in partnership with police and other community

organisations.

Intervention

This type of approach focuses on education and work opportunities as well as counselling and health

services. Mostly this is promoted by detached youth workers forming bonds with the gang members,

advocating on their behalf and offering support and direction through “curbside counselling” (Busik &

Grasmick, 1993: p.164). Studies have shown that these types of reform programmes fail to impact

greatly as gangs are by-products of their communities. If the programme is operated in isolation from

community development it is unlikely to succeed.

It is more effective to target at-risk communities and work with the whole community to grow

transformation than to work solely in isolation with gang members.

Suppression

Suppression programmes where police are left to enforce punishment for criminal and violent

behaviour is a costly approach and any gains are short term (Sherman in Howell, 1998: p.294). On

its own suppression is proven to be the least successful of all interventions. Gang issues are “not a

law enforcement problem. Putting more kids in jail is not the answer to the gang problem any more

than putting drug addicts in jail is the answer to the drug problem.

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There needs to be a strategy, a well thought out, multi-disciplinary strategy involving all

aspects of the community”

(cited in Klein, 1995: p.153)

Of course this includes policy buy-in to any strategy or approach to ensure everyone is working

together to resolve the issue.

Collaborative Strategies

The key finding is that none of these approaches is effective in the long-term when implemented in

isolation to the others, and without a whole-of-community strategy to guide the work.

Instead of trying to use these strategies in isolation, a more effective approach is being taken in

communities across the globe to combine these strategies and work with the whole community to

address negative gang behaviour.

The new strategy combines five approaches as set out in the diagram below.

Community organisation: local community organisation or neighbourhood mobilisation

Goals or activities include:

- Cleaning up graffiti in the community

- School involvement

- Mobilizing the community

- Building community trust

- Involving parents in community programmes

- Educating the community

- Transformation of the community

Social intervention: youth outreach and street work counselling

Goals or activities include:

Criminal and/or

Violent Gang Behaviour

Community Organisation

Social Intervention

OpportunitySuppression

Organsiational Development and Change

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- Crisis intervention

- Service activities

- Diversion

- Outreach

- Providing role models

- Leadership development

- Inter-gang mediation

- Group counselling

- Temporary shelter

- Referrals for service

- Spiritual and cultural growth

- Drug use prevention and treatment

- Psychological approaches

- Social work approaches

- Post sentencing social services

- Helping gang members leave the gang

- Removal of gang tattoos

Opportunity: Jobs, job training and education

Goals and activities include:

- Job preparation

- Job training

- Job placement

- Job development

- School tutoring

- Education of gang youth (alternative education programmes)

Suppression: Arrest, incarceration, and supervision


- Enforcement

- Neutralisation

- Investigation

- Adjudication

- Apprehension

- Monitoring

- Restraint

- Arrest

- Discipline

- Intelligence

- Identification of suspects

- Legal consequences

- Removal from community

- Correctional placement

- Law enforcement liaison

- Victim support

Organisational development and transformation: Institutional and policy adoptions and mechanisms


- Internal agency coordination

- Improving organisational efficiency

- Programme development

- Advocacy for legislation

- Specialised training

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- Additional resources

- Case management

- Use of media

3.4. Literature Review Findings

From the research and work that has been done a comprehensive community-wide approach has

been identified as the most effective strategy.

“It is more likely that community mobilization and more resources for reform of the educational system

and the job market, targeted at gang youth or clearly at-risk youth, would be more cost-effective as

well as more efficient in the reduction of the problem…

….a series of programmes targeted specifically at the youth gang problem addressing not only the

issues of economic deprivation and lack of opportunities but (also) the social disorganisation and

mobilization of community institutions in a concerted attack at the problem.” (Spergel & Curry, 1990)

The community model requires a set of interrelated programmes with grassroots and organisations

working together to address the issues. The key is inter-agency communication and action and the

mobilization of different parts of the community. The model works with a steering group made up of

local representatives overseeing and monitoring the initiatives.

This multi-faceted approach has the best chance of success.

3.5. The New Zealand Experience

As mentioned at the start of this section, there is limited research and information available on the

New Zealand situation. What is known is that traditionally negative gang behaviour has been seen as

an issue of law and order, and therefore an issue for police to deal with.

However, since the early 2000s a few modest and newer programmes which are built on the

foundation of comprehensive community collaboration have emerged. These include:

- South Auckland ‘Plan of Action”. This programme aimed to provide ‘wrap-around’ services in

a multi-agency approach. The plan had the support of the police and MSD. The initial results

are encouraging with youth apprehensions dropping 9% between 2007 and 2008. In addition

resident surveys showed that perceptions of safety in community improved through the period

of 2006 to 2009.

- Youth Action Plan: Hastings. This aim of this programme is to “prevent Hastings youth from

joining gangs and participating in criminal activity”. The programme includes initiatives to

improve connectivity between youth and community, and to engage youth in positive

interactions and opportunities. The programme was initiated in 2011 and is due for a review.

- The Wesley Programme. This programme aims to “respond to the incidences of gang

clashes, conflict, escalating tension, aggression and violence” in the community. Actions

include running a Whanau Camp (2007), engaging youth in extracurricular activities such as

the Tokaanu Tailrace Horse Trek (2008), holding a Public Forum (2008), and running the

Matiu Island Leadership Development and Dive Course (2009). The goal is to provide a

range of positive experience and learning opportunities and to connect individuals to the

community.

- CART: This is a community based programme operating in South Auckland and includes

partnerships with government, community agencies, police and policy makers. Recent

evaluation shows that the programme has had a significant effect in halting retributive

violence among warring youth as well as a visible impact on the level of street crime in South

Auckland.

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One of the keys to success of these programmes has been engagement with gang leadership and the

importance of Tikanga Maori – particularly through the use of motivational speakers addressing

groups.

It is noted that “all programmes….should be subject to rigorous, regular and independent evaluation.

This is essential not only to justify the money invested…but also to ensure that the remedial

interventions do not inadvertently make things worse.”

Post Note

Since the Literature Report was commissioned the New Zealand Government has released the Youth

Crime Action Plan. Any initiatives that result from this research report should refer to and take into

account the national Youth Crime Action Plan, including taking advantage of any resources that may

be available through this plan.

4. Tairawhiti

Until now, there has not been any in-depth research done in relation to the behaviour, drivers or

motivation for change of criminal gangs in the Tairawhiti/ East Coast region. As far as the writers of

this report are aware, this is the first time that this type of research has been done. It should be noted

that the research undertaken specific to Tairawhiti and the East Coast for this project is limited due to

cost and time constraints and should not be taken as definitive but rather as a guide and indication of

the situation in this region.

4.1. Tairawhiti Gang Profile

Information Limitations

Current Tairawhiti specific gang data is sparse, inaccurate and largely anecdotal; time information

differing by margins as big as a decade in some instances. Bringing the data together has been

limited by these factors, especially due to the need for this to be a factually accurate report.

There are currently two significant gangs in Tairawhiti who are involved with criminal and violent

behaviour. These are the Mongrel Mob and Black Power. There have been some indications that

Killer Bees are also prospecting in Tairawhiti and the occasional other gang presence however at this

time the focus is on addressing issues related to the two major gangs.

Again, it is worth noting that gangs are often intergenerational in make-up and that although they may

now be “patched” to a particular order the root of the gang is often firmly grounded in whanau

affiliation and for that reason leaving a gang is extremely complex as the person would also have to

break away from family members and relationships.

Mongrel Mob

The Mongrel Mob (MM) first appeared in Gisborne as early as the 1970’s with their traditional

presence associated to the Gisborne suburb of Kaiti and the small township of Wairoa (Nuhaka). The

Gisborne chapter was the original chapter present however others began to emerge between 1990

and 2000. There are now five chapters affiliated to the MM in Tairāwhiti which include;

Aotearoa

East Coast

Gisborne

Notorious

Rogue

With approximately 150 patched members in total. This number increases by another 30, when

considering how many gang associates or prospects are also in Tairāwhiti. However this number is

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only a conservative approximate and does not include whanau in the community who would refer to

themselves as gang affiliated.

Black Power

The origins of Black Power (BP) being initiated in Tairāwhiti is not known however their traditional

presence had been restricted to certain streets in Mangapapa (Atkinson Street/Taruheru Crescent)

and Elgin (Munro Street). Other areas with a significant presence include rural Wairoa (Tuai,

Frasertown and Raupunga). The Turanga chapter is the older and more established chapter in

Gisborne and more recently in Tairāwhiti others have evolved which include;

East Coast Movement

New Zealand

Tairāwhiti

Frasertown

Raupunga

Mangu Kaha Aotearoa

There are approximately 130 patched members with another possible 100 or so associates and

prospects. Again this number is only a conservative approximate and does not include whanau in the

community who would refer to themselves as gang affiliated.

Historical conflict

Historically, gang conflict has been intermittently spread throughout Tairāwhiti, reinforcing anecdotal

evidence that these altercations are random by nature. However in some instances conflict have been

localised to where gang members reside or congregate. Recent altercations (2009 – present) in

Halley Street/Tyndall Rd/Gillies Street area, the Atkinson Street/Taruheru Crescent area and Ranfurly

Street/London Street area, Kaiti support this.

Historically, the Elgin, Munro Street/Miro Street area has seen gang conflict also, although anecdotal

evidence says this is decreasing.

Many incidents have occurred in Wairoa, gun discharge and an equal amount of gang conflict for

population size. Anecdotal evidence would suggest the same reasoning regarding Gisborne’s

locations and reasons for conflict would apply to Wairoa.

Most altercations end prior to police arrival, unfortunately incidents have the propensity to end fatally.

Historical conflict in Tairāwhiti has not been limited to inter-gang altercations. Intra-gang conflicts have

also occurred due to rivalries or personality clashes inside the same gang or between chapters.

These are often a result of an initial incident, de-patching or challenge for leadership.

Current situation

Violence is usually directed at rival gang members, however the potential for innocent members of the

community to be injured or killed is always present. The residents of areas of Te Tairāwhiti (Wairoa in

particular) appear to be accepting of the fact that gangs are entrenched in the community and that

there is nothing that can be done to change the situation.

While both gangs are involved in criminal offending, the MM are committing substantially more

offences per gang member and, as noted above, appear to be the antagonists for most of the gang

clashes.

The MM has extensive involvement in the supply of cannabis and methamphetamine and run a

number of drug dealing houses (DDHs). Methamphetamine is sourced predominately from other MM

chapters and members regularly travel out of the Wairoa region to uplift drugs.

Many BP members have access to forestry areas in the course of their work and are almost certainly

cultivating large plots of cannabis in remote areas. While the BP tends to be more family focussed

and indeed there are no methamphetamine convictions recorded for any members, anecdotal

evidence suggests it is possible some members may also be involved in the methamphetamine trade

for personal gain.

There have been 34 gang related incidents discovered by Tairāwhiti Police Intel since January 2012.

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Most incidents, over 75% (26/34) have involved the BP. Primarily these incidents have been as a

result of in-fighting or other intra-gang related politics (chapter to chapter). Conversely, just over half

of these incidents (18/34) have involved the MM in one way or another and over a third (12/34) of

these incidents involves both gangs together. The information suggests that the BP are the main

protagonists in recent gang activity at the moment and that it is mainly internal conflict with its own

members.

Two repeat locations were identifiable, with four incidents occurring in the Atkinson Street/Taruheru

Crescent area and five incidents occurring in Wairoa. The other 25 incidents were spread throughout

Tairāwhiti. This goes some way to reaffirm that although most incidents appear to occur in random

locations by chance meetings, incident are also likely to occur where gang members live or frequent.

The one commonality with these incidents is that almost all occurred in a public place. Which itself

presents a greater risk to the general public.

4.2. Methodology

The first part of the following information and data has been collected through a series of interviews

with a range of subjects impacted by negative gang behaviour. The research undertaken for this

report is therefore qualitative and subjective. It reflects the opinions and perspectives of the

interviewees and may at times views and opinions conflict and contradict depending on who is being

interviewed.

This is valuable in that it allows the research to determine where tensions exist that may be enhanced

by misunderstandings or misconceptions of one or another of the parties.

The interviews were held during the period of May 2012 through to July 2013. Groups interviewed

included:

- Gang members

- Prospects

- Partners of gang members

- Community groups

- Educational organisations, and

- Police

The second part of the data was collected during a survey of employers in relation to employment of

gang members and provides some insight to the areas that need to be addressed in order to provide

more positive opportunities for gang members and at-risk youth. The survey was conducted using

Survey Monkey with 30 responses.

Finally, the third part is qualitative data that has been provided by NZ Police. This data provides a

starting point for enabling evaluation and measurement of progress against a baseline.

4.3. Research Interviews

In May 2012 Joshua Wharehinga was commissioned by Safe Tairawhiti Community Trust: Ruia

Project to conduct interviews with individuals and groups from across a range of sectors (see above).

A copy of the interview transcripts is kept in confidence and every attempt has been made to keep the

information in this report anonymous.

The following is an analysis of the main themes and points of note arising from the interviews.

Gang Members

Gang members interviewed were largely Maori and male. All had finished school early and had spent

some time incarcerated. Members were interviewed from the Mongrel Mob, Black Power and

Rastafarians.

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All those interviewed stated that the two main reasons for joining the gang were to gain a sense of

belonging and/or for protection. In some cases the individuals joined an opposing gang after being

attacked by members or prospects of another gang for retaliation.

Some had real desire to move on from their past and find a better future, but felt that there were no

chances or opportunities to do so, leaving them stuck where they were.

Employment

Often gang members want to work but there are a number of issues that limit their options. These

include:

- Safety needs: not wanting to work where opposing gangs have a significant presence (such

as on seasonal crews)

- Criminal history

- Perception (reality?) that employers put off by appearances

In general gang members believe they are outside society norms and that for this reason they are

discriminated against and judged. Gang members often feel they are “treated like dirt” and looked

down on. Negative self-image is reinforced by this perception which in turn reinforces anger, hostility

to society and authority, and isolation from their communities.

“Once we have stuffed up is that it?....You’ve had your chance, you’ve blown it” Perception that

society doesn’t care about you anymore.

“No one wants to employ someone who looks like me”

Values

Those interviewed acknowledged whanau as a basic core value. Most don’t want their tamariki

ending up in a life of poverty and unemployment, although they are not adverse to them being part of

the gang.

They value the same things as most of us:

- Education

- Family

- Belonging

- Respect

- Contribution to community

- Relationship with the land

- Connection to home

- Opportunities and choices for their tamariki.

They belong to the gangs because these values (apart from education) are met for them in that

sphere and they have not been able to find fulfilment of these in other parts of their community/

society.

Interaction with Government and Community Organisations

A common response from interviewees was that they were treated with disrespect, poor

communication, poor service, and lack of information for whanau. Where interviewees felt they had a

positive experience they related it to being treated like whanau, having the person they were dealing

with be straight up with them – and understanding of their situation.

Education

Interviewees all had left the formal education system early in their teens. Reasons included not

feeling like they had a place in the Western education system, and feelings that they weren’t

understood or accepted. Most wanted better education for their children but still did not view the

Western education system as a favourable option for themselves or their kids.

Leaving the Gang

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Some interviewees had left the gang environment. Reasons for leaving included wanting a better life

for their children, and the feeling that they were not getting anywhere – with a desire to make a better

future.

Prospects

Most prospects interviewed noted that frustration with the education system and feeling judged and

unaccepted by their teachers was a key reason for falling in with gangs, where they found acceptance

and a sense of belonging.

Youth from gang families felt they had no choice as society – particularly teachers – had already

made up their mind about them so they have no chance for anything different. While they often

recognised the value of education, they could not find a way to ‘fit’ into the system. Often youth are

bored and that leads to acting out or dropping out – making them prime targets for prospecting.

Youth are looking for a place where they are treated with respect and where they can learn in an

interesting and vibrant environment. If they can’t find it in the schools, they will look for it elsewhere

and unfortunately they are finding it in gang environments.

Partners

A key theme from partners was the difficulties they experience from living in poverty and having to

engage with government organisations, systems and processes. Issues included frustrations at the

time and complications in getting things sorted and organisations having incorrect information or not

communicating properly with each other or with the individual.

However, these issues are not specific to gang members and their families. They are common issues

for most people who struggle to live in poverty and deprivation. The impact for gangs is that these

issues reinforce the benefits of being in a gang where you are “looked after” by the gang whanau.

There was a lack of information forthcoming from partners about their lives with gang members.

There may be many reasons for this and working with partners is one area that could be further

investigated as the project progresses.

Iwi

The reality is that criminal and violent gang behaviour is over-represented in the Maori community.

For this reason it is imperative that Iwi are part of any proposed solution. Many Iwi are already

working to address these issues and the purpose of this report and any resulting work would be to

draw together Iwi and other community efforts in a coordinated approach to the issues.

During the research for this report conversations were had with some Runanga, Kaumatua and Te

Poho Rawiri Marae. The key messages from these conversations was that there are generational

whanau issues that need to be addressed and that any action needs to be a long term plan – there

are no quick fixes. It was also mentioned several times that many Maori who are in gang whanau

have become disconnected from their culture and heritage. Re-engaging these Maori with their

culture and the values of whanau, respect and value of tamariki is one of the needs that must be

addressed if any real change is to occur.

There is a strong place for Marae based programmes that create a hub for culture, education, art and

other activities targeted for at-risk youth, out-of-gate prisoners who are at risk of returning to gang

environments, and for gang members who wish to transform their lives in a positive way.

Te Puni Kokiri’s approach is to focus on the behaviours that the community wants to change and this

report recommends that any future work focus on changing criminal and violent behaviour rather than

trying to disestablish gangs for the reasons mentioned previously regarding gang and whanau links.

TPK also look at addressing environmental factors (such as employment and housing), breaking

down barriers for hard to reach whanau, and engaging people in the situation with the solutions. For

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this reason it is vital that there is appropriate representation from those who have been involved in

criminal and violent gang behaviour on the community-wide forum working to change behaviour.

Other Community and Educational Organisations

It is interesting to note the contradiction in how organisations perceive their relationship with gang

members versus how the gang members view the relationships. Individuals interviewed from

organisations generally viewed their interaction as open, honest, caring, accepting and professional.

Perhaps the discrepancy is one about how ‘the man” (government, authority, the state) are viewed

versus the actual behaviour and interaction from some individuals who are doing a great job in

working with gang members in their communities.

Feedback from one educational organisation noted that enquiry learning seems to work well with

disengaged youth along with zero tolerance for negative behaviour and engagement with whanau.

Some schools are developing leadership programmes to give the kids an opportunity to grow

leadership and see that being different is ok when done in a positive way.

There is a view that the most effective programmes are using culturally appropriate models and are

focused on life skills and opportunities, not on trying to tell people that what they are doing is bad or

wrong. Just offering positive options for how to live the lives they are in. Ensuring that the gang

leaders are involved and aware/ understand what work the organisation is doing – getting their

support and buy in - makes the outcomes more effective for everyone.

All those interviewed noted that it is about building strong, positive relationships and engaging with

the whole whanau.

Police

There were mixed responses from police interviewed as part of this process. Responses ranged from

pragmatic (“we’re in Gisborne and that’s what we’ve got”), positive, to hard line (“if they want to live in

society that has rules…they need to abide by the same rules as everyone else”.

There was some frustration with the growth in youth related criminal and violent activity and the lack

of positive role models, particularly with 13 and 14 year olds. This is worth investigating further – why

are more kids moving into criminal and violent activity?

Young women are being drawn into gang life through relationships with older gang members where

they are finding more acceptance and think they will be treated better than they are at home. Often

they are pregnant by 16 or 17 years old and that connects them to the gang forever. However, gang

rape is not as prevalent and women in general are seeing that they deserve to be treated better – and

asking for respect. This is probably due to the community stance against domestic abuse and

improvements in the areas where gangs live.

Police notes that often when they were working one on one with individuals there was a willingness to

engage in a more positive way than when they had to address them as a group. They noted that the

issues these days were less about fighting and more related to selling drugs (particularly meth) –

although they recognised this was often in smaller groups within the gang rather than predominately

the whole gang.

Police generally have no problem engaging with the gang leaders although there may not be any real

action taken to improve things unless the gang leader is not aware of what is going on. Usually

positive engagement is around gang members wanting something better for their kids and asking the

police to get involved in helping ‘sort out’ their kids.

Officers who had positive interactions with gang members noted that relationships were important, as

was an understanding of their culture and a connection to Tairawhiti. Relationships built on

reciprocity, acceptance and non-judgement while maintaining your own integrity.

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Officers also thought that employment was a key factor – the cycle of unemployment keeps them out

of society and in poverty. Getting out of that cycle, doing a good day’s work and getting a good day’s

wages raises self-respect and lowers the desire to be in the gang environment.

Police solutions ranged from hard line through to building positive role models and leaders and getting

them out there engaging with the youth. They spoke about building better strategies around dealing

with offending youth and creating models that enhance employment and education opportunities.

4.4. Employment Survey

A survey was sent out to local employers through Survey Monkey. 30 responses were received. A

full transcript of the results is included in Appendix A to this report. Key findings included:

- Most (57.1%) employers had not employed gang members in the last 5 years and would not

consider employing gang members in the future

- About half of those who responded though that there may be risks to the company if they

employed gang members including theft, reputation, and safety of other workers

- Those who had employed gang members had done so for social reasons or because the

person was the best person for the job (regardless of affiliation)

- Most employers believed that employing a gang member could have community and whanau

benefits

- Some employers who are otherwise reluctant would consider employing gang members if

appropriate support was provided.

Overall it is clear that if gang members are to be encouraged to engage in employment opportunities

there is work to be done to encourage employers to engage them in the first place. There is no point

in trying to sell employment to gang members if employers are resistant to taking them on.

4.5. Qualitative Data on Gang Related Crime and Violence

Data pending from Police

5. Current and Proposed Programmes/ Services

Current Programmes

There are currently no local programmes that specifically target gangs. There are programmes,

services and organisations that happen to have gang affiliated people enrolled or as a part of them,

however nothing is delivered or tailor made to specifically fit gang affiliated whanau/rangatahi.

It would still be useful to have a detailed summary of the current programmes and services in

Tairawhiti have a component of prevention, intervention or suppression of criminal or violent gang

behaviour.

The information and data currently available is not sufficient to be able to provide detail for this report.

The STCT Strategy does have an indication of which providers and organisations may have

programmes and services operating in this area. However, there is not enough detail available to be

able to get a good picture of the programme and services currently operating – or planned to be

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operational – in Tairawhiti. Initially this information was to be gathered as part of the interview

process but was not able to be collected in time for this report.

Some of the organisations/ providers that may have programme and services in this space include:

Statutory Bodies

- Police

- GDC

- TPK

- Child, Youth and Family

- WINZ

- MSD

- Sport Gisborne Tairawhiti

- TDH

- TCPN

Networks

- TAIN

- Youth Offenders Network

- Child Protection Team

- Whanau Hau Ora

- Strengthening Families

Community and Volunteer Bodies

- Maori Wardens

- Te Poho Rawiri Marae

- Neighbourhood Watch

- Ka Pai Kaiti

- E Tu Elgin

- Kia Kaha Mangapapa

- Church communities

- Schools

- Tertiary providers

- Alternative Education providers

- Social Workers in Schools

NGOs

- Ngati Porou Hauora

- Te Ora Hou

- Runanga

- Family Works

- Gateway Programme

- Te Whare Whai Hua

- Barnardos

Information regarding what services and programmes are being delivered has been requested from

these organisations a number of times through STCT without success. It is recommended a more

direct face-to-face approach be carried out as part of the next phase through a review of these

programmes and services to identify gaps, duplications, effectiveness, and improvement

opportunities. The template in Appendix One could be used to collate this information.

Proposed Programmes/ Services

As mentioned before in this report, the complexities of intergenerational gangs mean that any

effective programmes would need to address the whanau and community environment as a whole.

The City Manager for the Escondido Gang Project stated “we need to give neighbourhoods and

families the autonomy and the means to do it themselves” and that the aim of their project was “not to

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prevent or eliminate gangs but to help them feel part of the community so that the need for violence

and drug-related activity would be diminished”.

A similar approach and philosophy is needed in Tairawhiti.

Before launching any new programmes or services it is vital that we understand what already exists,

how effective these programmes and services are in reducing criminal and violent gang behaviour

and ensure that any new work is done in a collaborative way that ensures a collective impact for the

community.

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6. Findings/ Results

“The challenge is for preventers, reformers, and suppressors to use the available data to design

intelligent programmes with an empirical base.”

6.1. Key Findings

1. Tairawhiti has a social problem with negative gang behaviour – crime and violence

2. While there are pockets of work being done to address the issue, there is no coordinated

approach – the work that is being done would provide good information and learning for how

we develop going forward so capturing this information is important

3. Lack of data available means there is no way of tracking effectiveness or ensuring that the

work being done is not, in fact, making things worse

4. No single approach or agency can effectively transform negative gang behaviour on their own

6.2. Recommendations

It is recommended that:

1. An Interagency Mobilisation/ Action Group be established to develop and implement a

Tairawhiti Community and Whanau Strategy based on the community-wide model. The

Action Group should include representatives from at least the following sector groups:

o Affected communities (including ex-gang members)

o Iwi, Runanga

o Police and probation officers

o Church groups

o Education providers

o Employers

o Community groups

o Council

o Social service providers/ organisations

o Sports and recreation groups/ clubs

o Government (central and local)

The model should address the interrelationships between strategies of community

mobilization, social intervention, provision of social opportunities, suppression and

organisational changes with all partners working together to serve a target group of criminal

gangs and at-risk youth.

2. The Action Group consider prioritising activities that address employment issues and increase

educational and recreational opportunities for at-risk youth.

3. A piece of work be carried out to identify all current and proposed programmes and services

that target criminal and violent gang behaviour, at-risk youth, and relevant whanau and

community groups. The work should ensure that any duplication, inefficiencies, opportunities

for improvement and collaboration are identified. This work should feed into the development

of the Action Group’s strategic action plan.

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4. Appropriate processes and systems be established to collect, analyse and evaluate data that

measures the effectiveness of all programmes and services that are contributing to this area.

This should include an Evaluation Framework that shows how any planned activities will

achieve the desired outcomes and include an RBA system for measuring progress.

5. It is not recommended that yet another strategy be developed, but rather that this work sit

under the Safe Tairawhiti Strategy, and be a 12-24 month action plan with specific outcomes,

timeframes and responsibilities allocated. An example of how this may look is set out in

Appendix Two of this report.

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Appendix One: Template for Collating Information on Programmes and Services related to Reducing Unwanted Gang Behaviour.

Category Provider Programme or Service Programme Aim Target Group Evaluated

Yes/No

Community

Organisation

Social Intervention

Opportunity

Suppression

Organisational Change

All

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Appendix Two: Example of a High Level Work Plan to Implement Recommendations from this Report

OUTCOME DESCRIPTION LEAD PARTNERS

1. The community and key

whānau are mobilised to

effect positive change.

A Community Forum is established to develop and implement a Tairawhiti Community

and Whanau Action Plan based a community-side model.

The model should address the interrelationships between strategies of community

mobilisation, social intervention, provision of social opportunities and organisational

change with all partners working together to serve a target group of whānau and

neighbourhoods with high proportions of members affiliated to gangs. Priority should be

on actions including those that will build trust within neighbourhoods; alternatives to

incarceration and post-release reintegration; improve participation in pro-social activities

and education; increase employment opportunities.

Mayor & Project

Coordinator

The Community Forum should include

representatives from:

Priority Communities (incl. ex-gang members &

neighbourhood associations)

Runanga & Pakeke/Kaumatua

Churches

Education Providers

Employers

Gisborne District Council

Social Service Sector (Safer Communities

Tairāwhiti, Tairāwhiti Community Voice)

Sport & Recreation Sector

Central Government: MSD (SST, WINZ, CYF,

FACS, MYD), Police, Corrections

2. Supported opportunities

for decent employment are

increased and taken up.

Activities that increase support for employers and create decent job opportunities

including, but not limited to:

Job preparation & training

Job placement & ongoing support

Job development & employer support

School tutoring & education for gang affiliated youth (alternative education programmes)

Project Coordinator Whānau

WINZ

Chamber of Commerce & key employers

SST Manager

Workbridge, Literacy Aotearoa, Career Services,

etc.

Schools & Alternative Education Providers

3. Local Services are

mapped

Identify all current and proposed programmes and services that target criminal gang

behaviour and/or at-risk youth, and that any duplications, inefficiencies, opportunities for

improvement and collaboration be identified. This work should feed into the development

of the Community Forum’s strategic action plan.

Project Coordinator &

SST Manager

Service Agencies

Funders

4. Change Monitoring

Framework established

Appropriate processes and systems be established to collect, analyse and evaluate data

that measures the effectiveness of all programmes and services that are contributing

Project Coordinator &

SST Manager

Service Agencies

Funders

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References

Gilbert, J., & Newbold. G. (2012). Gangs: A Review of Literature and Strategies – A report prepared

for the Safe Tairawhiti Community Trust.

Wharehinga, J. (2013) Interview transcripts

Gisborne District Council. (May 2011). Council’s Role in Relation to Gangs. Gisborne, New Zealand.

Australian Institute of Criminology. (August 2002). “No.237: Understanding Youth Gangs. Canberra,

Australia. White, R.

Burbidge, J. (1994). The Escondido Gang Project: A Participative Model of Community Development.

ProQuest Information and Learning Company.

Ruia Research Report_2013

Documents

Transcript of Ruia Research Report_2013