Measuring Community Safety

 Overview

Indicators for the Domains (Economic Readiness, Economic Security, etc.) in the graphic above are meant to be a reflection of the ways in which the Black and Brown residents that NIS has engaged in this participatory research project spoke about community safety and thriving.

While the indicators themselves were sourced by NIS, the need for them emerged directly from an analysis of focus group and interview data, which surfaced the conditions underlying community safety and thriving. We organized this document to highlight the issues and priorities of residents alongside the indicators.

A note on racial data:

NIS exclusively engaged communities of color in this project, given the disproportionate levels of violence and insecurity they face in New York City. While some of the below indicators are racially explicit in their construction, each cited data set has racial demographics data that should accompany each indicator. Without the inclusion of race, these indicators will fail to reflect the voices of the Black and Brown residents who informed them and appropriately measure the social conditions that have a significant racial component.

 

Domains and Indicators

The first three domains are framed through an economic lens, given residents’ framing of community safety as a predominantly economic issue. They propose measures that provide a snapshot of financial health across the personal, household, and community level. Economic Security contains indicators that largely speak to rates of poverty, job security, and various forms of economic insecurity that residents face. Economic Readiness is a domain that encompasses a range of measures across educational and workforce development systems that are meant to prepare residents for meaningful participation in economic life. Local Economy is a domain that emerged from residents’ desire to have resilient local businesses that provide access to valued goods and opportunities for entrepreneurship and wealth generation. 

The last four domains are not explicitly economic but encompass the remaining areas that residents identified as important to community safety and thriving. Physical Security contains indicators that speak to residents’ need to be protected from physical harm, including the harm that they experience at the hands of the NYPD and other residents. This domain is a combination of data about carceral system involvement and physical violence that underlie a lack of safety, and community-led policing efforts that could contribute to community safety. For residents who are economically insecure, access to services and utilities delivered by the government can be essential. Public Services contains indicators across the service areas that residents identified as important to community safety and thriving, with a particular emphasis on mental health and healthcare. Built Environment pertains to physical spaces and neighborhood conditions, with a particular focus on housing deterioration and access to neighborhoods with ample green spaces and non-hazardous conditions.

 

Economic Security

Resident goal: Communities that have well-paid, stable jobs that provide enough to meet individual and family needs, access to quality housing, food, and healthcare, and agency in their economic future. Residents emphasize economic security as foundational to sustained community safety.

 

Click on the Indicator categories below to see how Indicators are measured:

+ Poverty

Resident rationale: The experience of poverty is the most common factor underlying a lack of safety in a community. A decrease in poverty should be the leading measure of a safe community.

Indicator Indicator measurement Data Source
Poverty rate Rate calculated using income (inclusive of benefits), city housing expenses, and additional expenditure (see here) NYC Opportunity Poverty Rate
Near poverty rate Percent of NY residents with income up to 150% OF NYCgov poverty threshold NYC Opportunity Near Poverty Rate
 

+ Job Security

Resident rationale: Community residents face barriers to consistent employment, including discrimination, long commutes, and lack of affordable child care and quality education and training, and they struggle to make ends meet with jobs that are low-paid and do not cover living expenses. Employment in jobs that are accessible, pay a living wage, and allow for wage and income growth is a key measure of economic security.

Indicator Indicator measurement Data Source
Unemployment rate Unemployment rate by race / ethnicity OMB: NYC Seasonally Adjusted Employment
Annual data available from NYC OEO
Living wage Prevalence of employed individuals making a wage below area self-sufficient or living wage ACS Table B19051
Income inequality Annual household income at the 80th and 20th percentile. 80:20 ratio Table S1901
Working poor The percentage of workers ages 25-64 who are "working poor," defined as both (1) working full-time and (2) being below the NYCgov poverty level or at the near poverty level NYC Opportunity
Income growth Average annual earned income for full-time wage and salary workers ages 25-64, and real earned income growth over time, by percentile ACS
Job & wage growth The net percentage change in jobs and earnings per worker by wage level category IBO data set
Commute time The share of individuals who worked in the last week (excluding those who work at home), by the reported time it usually takes to get from home to work. NIS suggests capturing the percent who spent over 60m commuting. ACS Table S0804
 

+ Savings

Resident rationale: The ability to save for the future was unavailable for most residents who experience economic hardship. Developing and growing savings and assets is a key measure of economic security and future thriving.

Indicator Indicator measurement Data Source
Retirement security Median income-to-poverty line ratio of residents aged 65 and older US Census PUMS 5 year estimates
Savings account utilization Average savings and retirement account balance No data set identified. NY Fed collects a Survey of Consumer Expectations at the State Level.
 

+ Home Security

Resident rationale: Housing is often the biggest expense for residents. Access to affordable, secure housing is a key component of economic security, and homeownership can also contribute to economic security and mobility.

Indicator Indicator measurement Data Source
Housing burden The share of owner and renter-occupied households that are cost-burdened (spending more than 30 percent of income on housing costs) and severely cost-burdened (more than 50 percent) ACS
Table A18002
Homeownership Percent owner-occupied households by race/ethnicity ACS
Table B25008
Evictions Monthly count of evictions Dept of Investigation (via ODP)
Affordability of rent stabilized units Percentages of housing burdened households who have rent stabilized apartments NY HVCS Survey (2017)
Adult stability Percentage of adults age 18+ who lived in the same house 1 year ago ACS Table B07001
Gentrification Gentrification Measure - see Methodology ACS for demographic data
US2010 Russel Sage & Brown for census geography
 

+ Food Security

Resident rationale: Many residents experience food insecurity and rely on government and non-profit services for consistent access to food. Increased food security is a key measure of increased economic security.

Indicator Indicator measurement Data Source
Food insecurity rate Rate of food insecurity by district Feeding America conducts a rate using census data and a number of other economic measures. See methodology for details
 

+ Health Security

Resident rationale: Healthcare costs are often prohibitive for residents without jobs that offer insurance. High healthcare costs mean that residents forgo necessary medical care, which can undermine their physical health. Access to consistent healthcare is a key measure of economic security.

Indicator Indicator measurement Data Source
Prohibitive healthcare costs Estimate of residents who forego medical care and prescriptions due to cost DOHMH Community Health Survey
Jobs with health insurance Percentage of the population that has private health insurance through a current or former employer or union Census PUMS data Table S2701
 
 

Economic Readiness

Resident goal: Communities that are equipped with the quality education and employment preparation needed for residents to succeed in the economy. Residents discussed economic readiness as a driver of economic security, as well as an indicator of the community investment and opportunity necessary to community safety.

 

Click on the Indicator categories below to see how Indicators are measured:

+ Disconnected Youth

Resident rationale: Youth struggle to access quality education and other extracurricular opportunities that might expose them to academic and professional pathways, and disconnection from those activities can contribute to engagement in activities that undermine community safety.

Indicator Indicator measurement Data Source
Disconnected youth Number of young people ages 16-24 who are neither working nor in school

Captured by NYC Opportunity

Likely based on ACS IPUMS 5 year sample

Chronic absenteeism Number of students who are absent 10% or more of school days NYC DOE End-of-Year Attendance and Chronic Absenteeism Data
Drop-out rate New York City public high school students who had dropped out after four years or six years of instruction. NYC DOE
 

+ Educational Quality

Resident rationale: Youth struggle to access quality education and other extracurricular opportunities that might expose them to academic and professional pathways, and disconnection from those activities can contribute to engagement in activities that undermine community safety.

Indicator Indicator measurement Data Source
Overcrowded schools Percentage of schools in a geography where enrollment exceeds capacity. NYC DOE
Class size Average pupil to class size ratio NYC DOE
School poverty Economic Need Index - percentage of students facing economic hardship, determined by eligibility for HRA assistance, temporary housing, and census tract poverty rates. NYC DOE
School representativeness

Representativeness is categorized on a three-point scale, described by CCC as the Degree of Representation:

Representative = within 10 percentage points of the district demographic makeup

Somewhat Representative = within 20 percentage points of the district demographic makeup

Not Representative = more than 20 percentage points outside of the district demographic makeup.

NYC DOE
College readiness The percentage of a 9th-grade cohort who, by August after their 4th year in high school, have met CUNY's standards for college readiness in English and mathematics. NYC DOE
Student perception of quality Annual survey results NYC DOE
Teacher absences Percent of teachers absent more than 10 days of the school year Civil Rights Data Collection
Methodology on p 16
Teacher experience Percent of teachers with fewer than 4 years of teaching experience NYSED - NYS Report Cards Database
 

+ Educational Attainment

Resident rationale: Educational attainment is crucial to accessing well-paid, stable jobs and continued economic opportunity and is an important measure of economic readiness.

Indicator Indicator measurement Data Source
High school attainment Percentage of adults 25+ with at least a high school diploma ACS Table A12001
Post-secondary attainment Percent of adults 25+ with a post-secondary degree ACS Table A12002
On-time graduation Percentage of public school freshmen who graduate within four years. NYC DOE
NYC DOE post-secondary graduates Percentage of NYC DOE on-time high school graduates who enrolled and graduated from college with an Associate’s or Bachelor’s degree within 6 years. NYC DOE
 

+ Employment Preparation

Resident rationale: Without pathways to attaining quality employment, residents do not have the foundation necessary to building economic security, and they see a need for increased investment in effective job training and placement programs. Access to those programs is, therefore, a key measure of economic readiness.

Indicator Indicator measurement Data Source
Career centers Proximity to career development services

SBS for Workforce1 Centers

NYC Opportunity for Jobs Plus Centers

HRA for Job Centers

Vocational education programming Proximity to vocational education courses that are eligible for individual training grants SBS
Youth workforce preparation Participation in workforce preparation programming by census block Summer Youth Employment Program (SYEP) data
Youth afterschool programming Percent of total available seats for youth vs eligible youth

DYCD for DYCD Programs

See this map for a set of programs across agencies

 

Local Economy

Resident goal: Neighborhood economies that support and sustain locally-owned-and-operated businesses that provide residents with quality goods and services, as well as employment and wealth-building opportunities. A thriving and equitable local economy contributes greatly to resident economic readiness and is an essential component of economic security in a community.

 

Click on the Indicator categories below to see how Indicators are measured:

+ Community Business Ownership

Resident rationale: Locally owned businesses are pillars for local communities, providing wealth-building opportunities for business owners and employment opportunities for local residents. Community business ownership is a key measure of a local economy that supports economic security.

Indicator Indicator measurement Data Source
Local employers Number of employer businesses by census block

Census Bureau Survey of Business Owners

Minority-owned businesses Percent of businesses in a neighborhood that are minority owned

NYC Department of Small Business Services MWBE Directory

US Census Bureau Annual Business Survey

 

+ Community Business Stability

Resident rationale: The stability of locally owned businesses is threatened by poverty and gentrification. The stability of community businesses is a key measure of a local economy that can support sustained economic security for residents.

Indicator Indicator measurement Data Source
Job gains in local employer businesses Local employer job gains/loses by race and geography

Bureau of Labor Statistics Employment Dynamics

Employer business revenue Average annual receipts per firm and growth in receipts per firm.

US Census Bureau Annual Business Survey

Tenure of local employer businesses Average tenure of local employer businesses

US Census Bureau Annual Business Survey

 

+ Accessibility of Goods & Services

Resident rationale: Residents struggle with the limited number of businesses in their local neighborhood and often have to travel to access quality goods and services. Residents are often forced to choose from unhealthy and low-quality options. Availability of all essential goods and services is a key measure of a thriving local economy.

Indicator Indicator measurement Data Source
Access to supermarkets Supermarket Need Index

DCP develops the SNI annually using department of agriculture data and ACS demographics data

Fast food density Number and density of fast food restaurants No data set found.
Tobacco store density Number and density of tobacco outlets DCA: Active Tobacco Retail License
Availability of local essential businesses in the neighborhood Number of essential businesses in a ½ mile radius No data sets identified for pharmacies, laundromats/dry cleaners, hardware stores
 

+ Accessibility of Financial Services

Resident rationale: Minority business owners often struggle to access the credit necessary to start and grow their businesses, and residents struggle to access affordable banking products. Access to affordable banking and credit is a key measure of a thriving local economy.

Indicator Indicator measurement Data Source
Bank/credit union density number of bank and credit union branches per 10,000 residents

Bank branch data - FDIC Summary of Deposits

Credit union branch data - NCUA

Population data from ACS

Bank/credit union to nonbank ratio Ratio of banks/credit unions to check cashers/pawnshops

Bank branch data - FDIC Summary of Deposits

Check casher locations - request from NYS DFS

Pawnshop locations - DCA “legally operating businesses” table

Credit union branch data - NCUA

IDNYC acceptance Percentage of bank and credit union branches that accept IDNYC as primary ID ID NYC
Affordable banking products Percentage of bank and credit union branches offering checking accounts that meet the requirements of New York’s basic banking law

Affordable product data - Comptroller Report (2015)

Affordable product data at credit unions - OFE report (2018)

 
 

Physical Security

Resident goal: Neighborhoods where residents feel protected from physical harm. Most residents see a role for police in that protection but emphasize a need for community-led policing that can build alternatives to violent policing and foster relationship-and trust-building. A security force that is community-directed was described as an approach that could reduce incarceration and violence, and provide safety for the whole community.

 

Click on the Indicator categories below to see how Indicators are measured:

+ Police Misconduct & Force

Resident rationale: Residents and police fear each other in ways that lead to police misconduct and undermine the safety of residents. Decreased use of force and invasive policing is a key measure of increased safety.

Indicator Indicator measurement Data Source
NYPD misconduct complaints Misconduct complaints by precinct CCRB
NYPD misconduct investigations Percent of complaints investigated by precinct CCRB
Stop and frisk number of stops by precinct NYPD
Use of force number of use of force incidents by precinct NYPD
Police-involved deaths number of police-involved deaths Potential data sets:
DOHMH
Gun Violence Archive
 

+ Carceral Involvement

Resident rationale: Residents struggle with the high incarceration rates of family and community members and over-policing of their neighborhoods and schools. Decreased policing of small offenses and decreased incarceration overall are important measures of physical security.

Indicator Indicator measurement Data Source
Criminal summons rate Monthly rate of criminal summons by age and race New York Office of Court Administration (see p.26 for methodology)
Imprisonment rate number of people in state prison by neighborhood tabulation area Compiled by the Prison Policy Initiative using NY PUMS Data from 2010
Incarceration rate Percentage incarcerated in jail by zip code DOC has this data but it isn’t included in the public data set
Juvenile arrests Number of youth (17 and under) arrests Borough-level data available from NYS DCJS
Juvenile detention rate Youth admitted to juvenile detention during the calendar year NYC Administration for Children’s Services “Detention Admissions by Home Borough”
School police presence Number of police officers assigned to schools by precinct No data set identified
 

+ Community-Led Policing

Resident rationale: Many residents express a desire for community-led policing, where residents could help determine how policing happened and who patrolled the neighborhood. An expansion of community-led alternatives to existing policing is a measure of an increased sense of physical security.

Indicator Indicator measurement Data Source
Resident satisfaction score Average score across community satisfaction metrics No data source found. The NYC Police Reform and Reinvention Collaborative’s report indicates that community feedback on precinct performance will be collected through multiple programs. A metric that aggregates those measures could be meaningful. Additionally, MOCJ is collecting survey data that measures resident police satisfaction, which could be included here.
CMS presence See note OPGV
NYPD neighborhood coordination officers Number of neighborhood coordination officers (NCOs) in a precinct No data set found
Neighborhood watch presence Presence of a neighborhood watch or tenant patrol program No data set found
NYPD Build the Block attendance Attendance rate of build the block meetings No data set found
Precinct Commander community alignment number of precinct commander appointments that are aligned with precinct council recommendations No data set found. The NYC Police Reform and Reinvention Collaborative’s report indicates that precinct councils will interview and vet NYPD-proposed precinct commanders before they are appointed. Data should be collected on the proportion of precinct commanders that are approved by the majority of the precinct council.
 

+ Violent Crime

Resident rationale: Violent crime has a big effect on whether people feel physically secure in their communities. Although it is only one of many indicators, a decrease in violent crime is still an important indicator of safety.

Indicator Indicator measurement Data Source
Violent Crime Incidents Monthly rates of complaints for violent offenses (rape and sexual assault, robbery, assault and murder) NYPD
Domestic Violence Annual complaints of domestic violence NYPD
 
 

Public Services

Resident goal: Accessible and affordable public services that meet the needs of residents. Public services can provide essential support to communities who are economically insecure, allowing them to build towards longer-term security.

 

Click on the Indicator categories below to see how Indicators are measured:

+ Mental Health

Resident rationale: Residents indicated that mental health was a major challenge in their communities, given the effects of intergenerational poverty, violence, and incarceration. Mental illness was commonly cited as a cause of violent crime making access to quality and affordable mental health services essential to individual and community safety.

Indicator Indicator measurement Data Source
Presence of mental health services Number of subsidized mental health programs No data set identified, though MOCMH has a list of providers and programs by geography.
Presence of substance abuse services Number of subsidized chemical dependency services

SAMHSA for treatment substance abuse treatment facilities

OSAS for a list of subsidized programs and services

Adult mental health status % of respondents who cite “current depression” or “serious psychological distress” DOHMH Community Health Survey
Youth mental health status

The percentage of high school-aged youth that reported:

[1] feeling "so sad or hopeless almost every day for 2 weeks or more in a row that they stopped doing some usual activities" in the past 12 months

[2] Planning or attempting suicide

CDC: High School Youth Risk Behavior Survey
Psychiatric hospitalization rate Adult Psychiatric Hospitalization Rate DOHMH calculates using ACS and SPARCS data. MOCJ to request.
 

+ Healthcare

Resident rationale: Residents struggled to access healthcare services that are affordable, local, and of quality. Access to quality healthcare underlies physical and economic security and is, therefore, a key measure of safety.

Indicator Indicator measurement Data Source
Health insurance access Percentage of residents with health insurance ACS Table S2701
Health professional shortage area

A designation given to indicate a shortage of providers.

Calculated using the following:

  1. Population to provider ratio
  2. Percentage of the population below 100% of the Federal Poverty Level
  3. Travel time to the nearest source of care
HRSA
Medically underserved index The IMU is calculated from four variables, including ratio of primary care physicians per 1,000 population, infant mortality rate, percentage of the population with incomes below the poverty level, and percentage of the population age 65 or over HRSA
Self reported health status The number and age-adjusted percentage of adults aged 18 and older that reported their health as excellent, very good, good, fair, or poor. DOHMH Community Health Survey
Premature mortality rate Age-adjusted rate of deaths under the age of 65 years per 100,000 people. DOHMH
Infant mortality rate Rate of deaths under 1 year of age per 1,000 live births DOHMH
 

+ Connectivity

Resident rationale: Particularly during the COVID-19 pandemic, where remote schooling and working were the only options, many residents struggled to participate due to a lack of reliable broadband internet and access to computers. Access to broadband and appropriate technology is essential to the economic security that comes with engaging in the modern workforce and education system.

Indicator Indicator measurement Data Source
Broadband access Percentage of households with broadband ACS Table DP02
Computer access Percentage of households with a computer of any kind (desktops, laptops, tablets, or smartphones) ACS Table DP02
 

+ Transit

Resident rationale: Access to adequate transportation has major implications for people’s quality of life. Many residents struggled to access reliable transportation, which served as a barrier to employment, education, and other essential services. This is particularly true for senior residents and those with disabilities, who struggled to come by ADA accessible transit stations. Transit access is a key driver of access to employment and education opportunities, which are essential to economic security.

Indicator Indicator measurement Data Source
Transit availability Per capita subway entrances, bus stops MTA
Transit accessibility Per capita number of “fully accessible” subway stations MTA
 

+ Public Assistance

Resident rationale: Support for basic income, food, housing, and child care needs enables people to sustain themselves, providing short-term physical and economic safety while enabling them to seek to establish longer-term economic security.

Indicator Indicator measurement Data Source
Utilization of public assistance Percentage of eligible households who receive SNAP or cash public assistance

HRA for SNAP

ACS for public assistance data

Emergency food recipients Number of people receiving emergency food Non-geo data from HRA. No data set identified for CD-level data.
Subsidized housing utilization Ratio of population who are enrolled to ratio of population who are eligible NYCHA
Access to child care Number of subsidized licensed center/family child care slots per 100 low-income children DOHMH
 
 

Built Environment

Resident goal: Neighborhood physical spaces that are clean, accessible, functional, and beautiful. Residents describe investment in shared spaces as important to making people feel valued in their community, and well-kept spaces are both indicators of and contributors to economic and physical security.

 

Click on the Indicator categories below to see how Indicators are measured:

+ Housing Deterioration

Resident rationale: NYCHA residents face crumbling and hazardous infrastructure, including buildings without working doors, elevators, and cameras, apartments with long-overdue repairs, and trash-covered outdoor spaces. Neglected spaces affect how people feel about their communities and can attract crime, making them a key measure of decreased psychological and physical safety.

Indicator Indicator measurement Data Source
Maintenance deficiencies The percent of households that reported three or more maintenance deficiencies NYC Housing and Vacancy Survey
Fair to poor housing Adults who rate their neighborhood housing conditions as fair or poor NYC Housing and Vacancy Survey
Emergency housing complaints Number of complaints citing heat and hot water, lead, or other emergency problems in privately owned buildings HPD
Emergency violations issued Number of emergency violation repair citations issued by HPD HPD
NYCHA complaints Number of maintenance complaints received by NYCHA No data set identified
Bed bugs Number of units in a building that are infested with bedbugs HPD
Rodent presence Monthly count of failed rodent inspections DOHMH
 

+ Environmental Quality

Resident rationale: Poorly-maintained housing and other public infrastructure produce an unpleasant physical environment and adversely affect resident health. Poor environmental quality is a measure of lack of community safety.

Indicator Indicator measurement Data Source
Complaints of dirty conditions 311 service requests labeled “dirty conditions” 311
Park and playground condition Average score of PIP ratings for safety, structural condition, and cleanliness DPR PIP
Presence of lead

Lead Levels

[1] Children Tested for Lead by Age 3

[2] Children Under 6 yrs with Elevated Blood Lead Levels

[3] Lead piping (Lead Service Line Location Coordinates)

[4] Lead Paint Indicator - Percent of housing units built pre-1960, as indicator of potential lead paint exposure

[1] DOHMH

[2] DOHMH

[3] DEP

[4] ACS

Air quality Air quality measurement DOHMH
Proximity to hazardous waste

[1] Count of hazardous waste facilities within 5 km

[2] Count of proposed or listed National priorities list - also known as superfund - sites within 5 km

[1] EPA

[2] EPA

Water contamination Monthly water quality score DEP
Rodent presence Monthly count of failed rodent inspections DOHMH
 

+ Land Use

Resident rationale: Residents highlighted access to gardens and other green spaces as important to their psychological well-being and physical health, making them an indicator of increased safety.

Indicator Indicator measurement Data Source
Green space access Percent of population who live within 1/2 mile of a park, beach or open space DoITT
Community garden access Percent of population who live within 1/2 mile of a community garden DPR
 
 

Community Power

Resident goal: An organized and engaged community that acts together through democratic structures to set agendas, shift public narratives, and cultivate relationships of mutual accountability with governmental decision-makers.

* As a domain for measurement, community power is significantly more complex than the domains above. Community power is both a catalyst for all of the above safety domains and exercised in distinctly context-dependent ways, varying significantly based on the needs, goals, and relationships of a particular place.

Given that this project seeks to measure safety in NYC, we explore community power in the context of the NYC government’s existing safety programming. Residents spoke of community power as a primary driver of community safety, and so we developed an evaluation framework for safety programming with community power as the primary target.

See the next section for a discussion.

 

 

 

Previous Section