Process Evaluation and Impact = Evaluation

From: Subject: Process Evaluation and Impact Evaluation Date: Wed, 19 Mar 2003 02:59:15 -0800 MIME-Version: 1.0 Content-Type: multipart/related; boundary="----=_NextPart_000_0009_01C2EDC3.86DAFF60"; type="text/html" X-MimeOLE: Produced By Microsoft MimeOLE V6.00.2600.0000 This is a multi-part message in MIME format. ------=_NextPart_000_0009_01C2EDC3.86DAFF60 Content-Type: text/html; charset="Windows-1252" Content-Transfer-Encoding: quoted-printable Content-Location: file://D:\Temp\try2.htm Process Evaluation and Impact = Evaluation Original url for document:=20 http://www.bja.evaluationwebsite.org/html/documents/process_evaluation_ga= ngs.htm=20

Note: For process evaluation see the "Process Evaluation" section = below.=20 After the process evaluation section is a short section on impact = evaluation.=20

Chapter=20 8

Evaluation=20

Without a systematic evaluation, an agency may not be able to assess = whether=20 its gang suppression strategy is successful. A careful evaluation will = suggest=20 ways to improve or expand operations, point out strengths and = weaknesses, and=20 help other departments adapt similar strategies to meet their = communities'=20 needs. Also, the public, elected officials, and potential funding = sources will=20 want to see evidence of success.

The evaluation design need not be overly complex to produce = meaningful=20 results. This chapter presents concepts to consider in conducting = evaluations.=20 Local colleges and universities also may be of assistance either by = helping with=20 evaluation design or by providing student interns who can collect and = analyze=20 data.

The police department should prepare for the evaluation during the = project's=20 early planning stages. An early analysis will describe the environment = in which=20 the department is operating and may reveal areas in which new or revised = data=20 collection procedures are needed. When the department establishes its = gang=20 suppression objectives, planners also should determine the indicators = for=20 measuring the achievement of those objectives.

In general, the evaluation seeks to answer several key questions:=20

Was the strategy or program implemented as intended?=20
What specific activities were implemented?=20
Did these activities lead to the attainment of specific = objectives?=20
Were the program's overall goals achieved?=20
To what extent were successes or failures a result of factors = other than=20 the strategy?

To answer these questions, a two-stage approach to evaluation is = used. This=20 approach is described in the following sections.

Process Evaluation

A process evaluation documents and analyzes the early development and = actual=20 implementation of the strategy or program, assessing whether strategies = were=20 implemented as planned and whether expected output was actually = produced.=20 Examples of output include:=20

Number of gang-related crimes reported.=20
Number and category (for example, leaders, hardcore members, and=20 associates) of gang members arrested.=20
Number and types of weapons seized from gang members and = associates.=20
Types and amounts of drugs seized from gang members and = associates.=20
Number of gang members and associates convicted, along with = charges and=20 sentences.

Other output measures are listed on a quarterly reporting form = completed by=20 departments funded under BJA's Urban Street Gang Program. A copy of this = form is=20 included in Exhibit 4 which is not attached.

Detailed information about the program as it was actually implemented = is=20 invaluable for determining what worked and what did not. A thorough = process=20 evaluation should include the following elements:=20

Description of the program environment and supplying data.=20
Description of the process used to design and implement the = program.=20
Description of program operations, including any changes in the = program.=20
Identification and description of intervening events that may have = affected implementation and outcomes.=20
Documentation such as meeting minutes, reports, memorandums, = newsletters,=20 and forms.

Describing the Program Environment

Before a program's effectiveness can be judged, it is important to = understand=20 its operating environment. The program analysis stage (see Chapter 3) = produces a=20 detailed description of the environment at the time of planning. = Significant=20 changes in the environment should be documented during program = implementation to=20 help determine whether similar results may be expected in other = communities or=20 whether the results are site specific. That is, if the environment is = unique,=20 then the results achieved in that setting may not be replicable = elsewhere.

Describing the Process

Good ideas do not always yield good results. Therefore, to understand = the=20 tasks to be performed and the scope of effort, a clear description of = the=20 implementation process is required. This step also will aid in = replicating the=20 effort in other environments. Describing the implementation process = would=20 involve elements such as:=20

Interaction among participants (for example, gang specialists or = gang=20 unit, patrol, investigations, crime analysis, other local criminal = justice=20 agencies, Federal enforcement agencies, and citizen groups).=20
The extent of participation (for example, by various agencies, = units, and=20 individuals).=20
Any training provided to officers or other participants.=20
Interaction among participants and others in the community who = were not=20 involved in planning and implementing the strategy.

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Describing and Measuring Program = Operations

The process evaluation must describe the way the gang suppression = strategy=20 worked, or failed to work, using quantitative and qualitative data. = Questions to=20 consider in assessing the process evaluation include the following:=20

What problems were encountered in implementing objectives? How = were they=20 resolved?=20
Have all planned activities been implemented? If not, what remains = to be=20 done? Were they accomplished on schedule?=20
If objectives, plans, or timetables were revised, why was this = necessary?=20
What new objectives were added and why?=20
What changes occurred in leadership or personnel? What effect did = these=20 changes have?=20
What costs were incurred? Did they exceed initial projections?=20
What was the level of resident support in targeted neighborhoods? = How did=20 this affect the overall enforcement effort?=20
What lessons have been learned that might be useful to other=20 jurisdictions?

Identifying Intervening Events

Local programs operate in continually changing environments. To = identify the=20 effects of various intervening external factors on program outcomes, an=20 intervening variable analysis is employed. The intervening variables = that may=20 affect a program are numerous, complex, and varied and may or may not be = able to=20 be controlled or eliminated. These variables are discussed later in this = chapter=20 in the Impact Evaluation section. To assess outcomes correctly, these = variables=20 will need to be identified, interpreted, and described.

Collecting Process Data

The process evaluation should begin during the program planning phase = and=20 continue through program implementation. Two main categories of data = should be=20 collected. The first data source includes official police, city/county, = census,=20 and other data gathered during the initial program planning and analysis = phase.=20 These data will help determine whether program outcomes may be expected = in=20 similar jurisdictions.

The second data source includes interviews = with=20 and observations of participants. Observations should begin with early = program=20 development and continue throughout program implementation. Major = planning=20 activities as well as enforcement activities are of interest. Observers = will=20 answer questions such as the following:=20

Does the process proceed smoothly, or are communications and = relations=20 difficult and strained?=20
Do participants work together to identify a range of potential = strategies?=20
Do the status and hierarchy of involved personnel interfere with=20 communications?

Interviews with key participants also should be conducted to = complement=20 information attained from observation. These interviews should reveal = the=20 reactions of patrol officers, investigators, and others to the program's = development, noting their observations about difficulties encountered = and=20 associated explanations, as well as suggested solutions. An open-ended = format=20 for observations is suggested so that observers are not limited in their = focus.=20 However, the protocol for interviews should be more structured to ensure = consistency and validity.

Impact Evaluation

An impact evaluation measures the program's effects and the extent to = which=20 its goals were attained. Although evaluation designs may produce useful=20 information about a program's effectiveness, some may produce more = useful=20 information than others. For example, designs that track effects over = extended=20 time periods (time series designs) are generally superior to those that = simply=20 compare periods before and after intervention (pre-post designs); = comparison=20 group designs are superior to those that lack any basis for comparison; = and=20 designs that use true control groups (experimental designs) have the = greatest=20 potential for producing authoritative results. At a minimum, gang = suppression=20 programs should use pre-post designs. Even better is the use of longer = time=20 series analyses and comparison or control group designs.

Dependent Variables

The major limiting factor on evaluations is the availability of = baseline data=20 on the dependent variables of interest. Examples of dependent variables = are=20 gang-related crime, citizens' fear of crime, and weapons offenses. = Although data=20 on arrests, reported crime, and calls for service for prior time periods = are=20 available in most jurisdictions, it may be impossible to determine from = these=20 data which events are gang related. Some jurisdictions find it = informative to=20 examine pre- and post-data surrounding events that frequently involve = gang=20 members (for example, all weapons offenses, including shots fired; = homicides;=20 drug trafficking; and driveby shootings).

Less commonly found are = data on=20 other variables, such as fear of crime, levels of disorder, or = satisfaction with=20 the police.

If no prior data exist for an important dependent variable, the = department=20 must gather the data prior to the start of a new program. This effort = may=20 involve producing special computer runs on selected types of incidents = or=20 geographic areas, conducting a special community survey, taking = photographs that=20 show gang influence in targeted neighborhoods, or hand tabulating data = from=20 existing records.

Comparison or Control Groups

Whenever possible, it is desirable to identify a comparison or = control group.=20 This may be a group of persons or an area in the community that does not = receive=20 the intervention but has characteristics similar to the group that does. = Another=20 possible comparison group is a similar, nearby community. The same pre- = and=20 post-intervention measurements should be made of the comparison group as = of the=20 group receiving the intervention.

Basic Evaluation Procedures

Regardless of the evaluation design, certain fundamental procedures = should be=20 followed, the most important of which are outlined in the eight steps = that=20 follow.

Carefully State the Hypothesized Effects. In = the=20 project planning phase, the department should carefully state its = expectations=20 of a gang enforcement strategy that is implemented correctly. There may = be one=20 anticipated effect or many, examples of which are:=20

The strategy will reduce gang-related crime by 30 percent.=20
The strategy will eliminate drug trafficking by the 86th Street = Crew.=20
The strategy will reduce fear of crime among residents in the = southwest=20 quadrant.=20
The strategy will result in conviction of two hardcore gang = leaders under=20 Federal Triggerlock statutes.

In some programs, the effects may be expected to occur in stages: for = example, the program will reduce street-level drug sales by gang = members, which=20 will reduce fear of crime. In this case, one stated effect is = anticipated to=20 result in another.

Identify Possible Unintended Effects. Most = programs=20 have potential associated risks that also should be identified early in = the=20 planning phase to allow the department an opportunity to address them = better.=20 The evaluation can assess whether the unintended effects occurred. = Examples of=20 unintended but anticipated effects are:=20

Officers will object to the organizational changes required for=20 implementation.=20
New gang leaders will quickly assume control after leaders = targeted by the=20 strategy are incarcerated.=20
Neighborhood residents will react negatively to increased = enforcement=20 efforts.=20
Key personnel will be transferred or will retire.

Define Measurement Criteria. The indicators = that will=20 be measured (for example, gang-related crime and community support) must = be=20 clearly defined to obtain consistent, reliable measurements. What is = meant by=20 gang related crime? Should a gang motive be present before crimes are so = classified? Are measures of some crimes more important than others? How = are=20 satisfaction with the police, fear of crime, or community support = defined? Terms=20 should be clarified so the department and evaluators understand exactly = what is=20 to be measured and how.

Determine Appropriate Time Periods. Data = collection=20 can be costly, and information about results is important to people with = investments in the program. For practical reasons, evaluators often must = compromise ideal time periods. This step responds to issues such as how = far back=20 in time baseline data should be collected and how long the program = should=20 operate to give it a fair opportunity to show results.

Generally, the BJA Urban Street Gang Program demonstration sites = obtained=20 data on key dependent variables (for example, drug arrests, driveby = shootings,=20 and gang-related homicides) for a 5-year period before project = commencement.=20 This method helped identify trends and aberrations. For example, an = unusual=20 problem or a unique special operation could have resulted in an = unusually high=20 arrest rate in a given year.

The demonstration sites were expected to devote the first 3 months to = the=20 needs assessment and planning processes, with program activities = occurring for=20 the next 12 to 15 months. The impact evaluation should be based on data=20 accumulated for at least 12 months of program activities. The = demonstration=20 sites were required to submit their evaluation reports in their 18th = month.

Although not a steadfast rule, most jurisdictions should be able to = make some=20 assessments about program impact after 12 months of activities. However, = the=20 appropriate period may vary considerably, depending on the nature of the = problem, the type and complexity of the response, and other factors. =

Monitor Program Implementation. Systematic = program=20 monitoring is required to aid the site in correcting and overcoming = problems, to=20 effect management improvements that may reduce future implementation = failures,=20 and to interpret program results correctly.

Collect Data = Systematically. The data collected on program = implementation,=20 hypothesized effects, and unintended effects must be as accurate as = possible. If=20 more than one person collects data, each must follow the same rules and = use the=20 same definitions. If data are collected over a long period, the same = rules and=20 definitions must be used throughout.

Analyze Data. Data analysis should produce a=20 description of the program as it was implemented. If the evaluation = design is=20 strong enough, analysis can go beyond describing what happened and = provide=20 convincing explanations of why it happened. The analysis should present = the=20 evidence that helps determine whether the program had its hypothesized = effects=20 and whether it resulted in any unintended effects.

In some situations, it may be useful to determine whether differences = between=20 target and control groups are statistically significant. Various = statistical=20 techniques may be used to determine whether observed differences are = likely due=20 to the program design or whether they occurred by chance.

For most jurisdictions, statistical significance will be less = important than=20 other considerations, such as if the program effect was large enough to = make a=20 substantial difference and if enough benefits were derived to justify = program=20 costs. These judgments must be made by the department, city or county=20 administrators, and residents, and the evaluation results should assist = in=20 making informed decisions.

Replicate the Program. Replication of a = program=20 ensures that the documented program effects were not a chance = occurrence, the=20 result of unobserved intervening factors, or limited to one place or one = time=20 period. Once a program component is found to have consistent effects in = several=20 applications, the strategy may be used confidently with predictable = results.=20 This feature underscores the importance of evaluations. =

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