Crowd Mg t Guidelines

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POSTGuidelines

Crowd Management,Intervention,

and Control

C A L I F O R N I A C O M M I S S I O N O N P E A C E O F F I C E R S T A N D A R D S A N D T R A I N I N G


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Forward by

Paul CappitelliExecutive Director

Commission on Peace Ocer Standards and Training

POST Guidelines

Crowd Management,

Intervention, and Control


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POST Guidelines Crowd Management,Intervention, and Control

2012 by California Commission on PeaceOfficer Standards and Training

Published March 2012

All rights reserved. This publication may not bereproduced, in whole or in part, in any form orby any means electronic or mechanical or byany information storage and retrieval systemnow known or hereafter invented, with out prior

written permission of the California Commissionon Peace Officer Standards and Training, withthe following exception:

California law enforcement agencies in thePOST peace officer program and POST-certified training presenters are herebygiven permission by POST to reproduce anyor all of the contents of this manual for theirinternal use.

All other individuals, private businesses andcorporations, public and private agencies and

colleges, professional associations, and non-POST law enforcement agencies in state or out-of-state may print or download this informationfor their personal use only.

Infringement of the copyright protection law andthe provisions expressed here and on the POSTwebsite underCopyright/Trademark Protectionwill be pursued in a court of law. Questionsabout copyright protection of this publication

and exceptions may be directed to Publications

Manager.

Cover image from shalunts / Shutterstock.com

POST2006TPS-0408
http://www.post.ca.gov/terms--conditions.aspxmailto:Laurel.Espell%40post.ca.gov?subject=POST%20Guidelines%20%C2%AD%E2%80%94%20Crowd%20Management%2C%20Intervention%2C%20and%20Control%0Dmailto:Laurel.Espell%40post.ca.gov?subject=POST%20Guidelines%20%C2%AD%E2%80%94%20Crowd%20Management%2C%20Intervention%2C%20and%20Control%0Dmailto:Laurel.Espell%40post.ca.gov?subject=POST%20Guidelines%20%C2%AD%E2%80%94%20Crowd%20Management%2C%20Intervention%2C%20and%20Control%0Dmailto:Laurel.Espell%40post.ca.gov?subject=POST%20Guidelines%20%C2%AD%E2%80%94%20Crowd%20Management%2C%20Intervention%2C%20and%20Control%0Dhttp://www.post.ca.gov/terms--conditions.aspx


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POST Guidelines Crowd Management, Intervention, and Control

|

POST Mission Statement

The mission o the Caliornia Commission

on Peace Ofcer Standards and Training

is to continually enhance the proessionalism

o Caliornia law enorcement in serving

its communities.


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| ii

POST Commissioners

Chair

Lai Lai Bui

Detective, Sacramento Police Department

Vice Chair

Jim McDonnell

Chie, Long Beach Police Department

Walter Allen

Member, Covina City Council

Tom Anderson

Public Member

Robert Cooke

Special Agent in Charge

Caliornia Narcotic Ocers Association

Floyd Hayhurst

Deputy Sherif, Los Angeles County

Ron Lowenberg

Director, Criminal Justice Training Center

Golden West College

John McGinness

Sherif (Retired), Sacramento County

Michael A. Ramos

District Attorney, San Bernardino County

Michael Sobek

Sergeant, San Leandro Police Department

Kamala D. Harris

Attorney General, Ex Ocio Member

Paul Cappitelli

Executive Director


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| v

Guidelines Development Committee

Dennis Beene

Deputy Chie

Caliornia Emergency Management AgencyKen Bernard

Captain

Sacramento Police Department

Don Bradley

Chie Deputy

Santa Cruz County Sherifs Oce

Donald Buchanan

Commander

Alameda County Sherifs OceRobert Fonzi

Assistant Sherif

San Bernardino County Sherifs Department

Robert Gerber

Acting Chie

Caliornia Emergency Management Agency

Bob Green

Commander

Los Angeles Police Department

Paul Henisey

Chie

UC Irvine Police Department

Michael Hillmann

Deputy Chie (Ret.)

Los Angeles Police Department

D. R. Ike Iketani

Assistant Chie

Caliornia Highway Patrol

Roxana Kennedy

Lieutenant

Chula Vista Police Department

Boyd Long

Assistant Chie

San Diego Police Department

Bruce Nalibof

Chie Investigator

Yolo County Distric t Attorneys Oce

Patrick ONeill

Sergeant

Eureka Police Department

Nader Oweis

Chie

UC Santa Cruz Police Department

Michael Peters

LieutenantOrange County Sherifs Department

Eugene Ramirez

Attorney

Manning & Kass, Ellrod, Ramirez, and Trester LLP

Carol Ann Rohr

Deputy City Attorney

City o Santa Monica

Tom Schwedhelm

Chie

Santa Rosa Police Department

Robert R.C. Smith

Senior Consultant

POST

Erik Upson

Captain

Berkeley Police Department

Robert Wickum

Captain

San Bernardino County Sherifs Department

Robert Wren

Lieutenant

Orange County Sherifs Department


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| vi

Forward

Penal Code 13514.5 requires the Commission on Peace Ocer Standards and

Training to establish guidelines and training or law enorcements response to

crowd management. It species that the guidelines to be developed by the

commission should take into consideration the roles and responsibilities o all law

enorcement ocers responding to acts o civil disobedience.

These guidelines provide inormation or law enorcement agencies to consider

when addressing the complexities and broad range o issues related to crowd

management. For the purposes o these guidelines, the general term crowd

management encompasses the management, intervention, and control strategies

or a law enorcement response to public assemblies and gatherings that can range

rom peaceul/non-violent to unlawul and riotous.

The guidelines are not meant to constitute policy, nor are they intended to establish

a statewide standard. They are solely a resource or law enorcement leaders to

provide oundational guidance or the acilitation o First Amendment rights while

allowing discretion and exibility in the development o individual agency policies.

The inormation contained in this publication represents the best thinking o

contemporary law enorcement leadership. POST is grateul or the assistance o

the Guidelines Development Committee who generously gave o their time and

expertise.

Questions or comments concerning these guidelines should be directed to the POST

Training Program Services Bureau at 916 227-4885.

Paul CappitelliExecutive Director

ftp://www.leginfo.ca.gov/pub/code/pen/13001-14000/13510-13519.15ftp://www.leginfo.ca.gov/pub/code/pen/13001-14000/13510-13519.15


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| ix

Introduction

In the United States all people have the right o ree speech and assembly guaranteed

by the First Amendment o the Constitution. The First Amendment states Congress

shall make no law respecting an establishment o religion, or prohibiting the ree

exercise thereo; or abridging the reedom o speech, or o the press; or the right o

the people peaceably to assemble, and to petition the Government or a redress o

grievances.

A undamental role o law enorcement is the protection o the rights all people have

to peaceully assemble, demonstrate, protest, or rally. In turn, law enorcement also

has the responsibility to ensure public saety and to protect the lives and property

o all people. The sometimes competing goals o maintaining order while protecting

the reedoms o speech and assembly stand as one o law enorcements greatest

challenges.

These guidelines are designed to assist law enorcement leadership in addressing the

many challenges and broad range o issues surrounding a response to incidents o

crowd management. All law enorcement leaders should amiliarize themselves with

the guidelines, strategies, terms, and denitions set orth in this document. These are

the generally accepted principles o crowd management, intervention and control,

and should serve to guide a law enorcement agencys response to both lawul and

unlawul assemblies.

Law enorcement planners should be proactive in consulting with and advising

their jurisdictions elected and administrative leaders o the identied strategies

and plans or specic events. Such interactions will help establish responsibility and

accountability at all levels.


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ContentsPOST Mission Statement..................................................................................................................................................................................................i

POST Commissioners ......................................................................................................................................................................................................iii

Guidelines Development Committee ...........................................................................................................................................................................v

Forward............................................................................................................................................................................................................................vii

Introduction.....................................................................................................................................................................................................................ix

Part 1 Law Enorcement Objectives........................................................................................................................................................................... 1

Guideline 1.1 Law Enorcement Objectives in the 21st Century .......................................................................................................... 1

Guideline 1.2 Principles o Crowd Management .................................................................................................................................... 3

Guideline 1.3 Community Stakeholders .................................................................................................................................................. 5

Part 2 Planning and Preparation ............................................................................................................................................................................... 7

Guideline 2.1 Incident Command System (ICS) and Standardized Emergency Management Systems (SEMS) ......................... 7

Guideline 2.2 Incident/Event Planning.................................................................................................................................................... 9

Guideline 2.3 Crowd Behavior ................................................................................................................................................................. 13

Guideline 2.4 Mutual Aid & Multi-Agency Coordination .................................................................................................................... 15

Guideline 2.5 Public Agency and Community-Based Resources ....................................................................................................... 17

Guideline 2.6 Training or Managing Crowds........................................................................................................................................ 19

Part 3 Inormation Management............................................................................................................................................................................. 21

Guideline 3.1 Inormation Gathering and Assessment....................................................................................................................... 21

Guideline 3.2 Incident Documentation.................................................................................................................................................. 23

Part 4 Roles and Responsibilities............................................................................................................................................................................. 25

Guideline 4.1 Command and Control .................................................................................................................................................... 25

Guideline 4.2 Leadership Responsibilities............................................................................................................................................. 27

Guideline 4.3 Criminal Investigation ......................................................................................................................................................29

Part 5 Crowd Control .................................................................................................................................................................................................. 31Guideline 5.1 Crowd Management, Intervention, and Control Strategies......................................................................................31

Guideline 5.2 Dispersal Orders................................................................................................................................................................. 33

Guideline 5.3 Mass Arrests and Bookings.............................................................................................................................................. 35

Guideline 5.4 Use o Force: Force Options.............................................................................................................................................. 39

Guideline 5.5 Use o Nonlethal Chemical Agents ................................................................................................................................. 41

Part 6 Media ................................................................................................................................................................................................................ 43

Guideline 6.1 Media Strategies ............................................................................................................................................................... 43

Guideline 6.2 Electronic Communication and Social Media ...............................................................................................................45

Appendix A Terms and Defnitions ........................................................................................................................................................................... 47

Appendix B Crowd Management Intervention and Control Strategies ............................................................................................................. 51

Appendix C Applicable Statutes ...............................................................................................................................................................................53

Appendix D Applicable Case Law ............................................................................................................................................................................. 57

Appendix E Training and Inormation Resources................................................................................................................................................... 61


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| 1

PART 1

Law Enorcement Objectives

Discussion: Law enorcement must careully balance the First Amendment rights and

other civil liberties o individuals with the interventions required to protect public

saety and property. When establishing policies and procedures, every agency should

consider that all persons have the right to assemble, demonstrate, protest, rally,

or perorm other activities protected by the First Amendment o the United States

Constitution. Law enorcement has the responsibility to protect the lives and property

o all people. Peace ocers must not be afected by the content o the opinions being

expressed nor by the race, gender, sexual orientation, physical disabilities, appearances,

religion, or political aliation o anyone exercising their lawul First Amendment rights.

They must have the integrity to not let personal, political, or religious views afect how

they perorm their duties.

Law enorcement planners should be proactive in consulting with and advising their

jurisdictions elected and administrative leaders o the identied strategies and plans or

specic events. Such interactions will help establish responsibility and accountability at

all levels.

Issues to consider (not in priority order):

Protection o Constitutional rights

Fair and impartial enorcement o laws

Protection o lie and property

Protection o vital acilities

Prosecution o violators

Public and peace ocer saety

Potential or disruption to commerce and community afairs

Establish policies and procedures

that recognize and address law

enorcement objectives and

provide or the legal protection

o the Constitutional rights o

all persons.

Guideline

1.1 Law Enorcement Objectives in the 21st Century


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PART 1 Law Enorcement Objectives | 3

Discussion: Any public assembly or gathering, whether or lawul or unlawul purposes,

may require the response o law enorcement. The response can range rom observation

to engaging in various crowd management strategies.

Not all crowd situations involve unlawul behavior. Law enorcements responsibility is

to objectively discern at what juncture a demonstration leaves the realm o legal protest

and becomes an abridgement o the rights o others. Law enorcement should seek

to acilitate lawul expression by groups who are present even when unlawul activity

occurs. The goal should be to protect lawul activity while identiying and isolating

unlawul behavior.

Efective response to crowd management events necessitates adherence to certain

oundational principles (not in priority order):

Leadership

Knowledge o Constitutional law

Knowledge o law and agency policies as they relate to use o orce and

inormation gathering

Proper planning

A willingness to reach out to protest groups and stakeholders

Using time, patience, and communication to attempt to acilitate lawul protestactivities and obtain voluntary compliance when easible

Use o the Incident Command System (ICS) and Standardized Emergency

Management System (SEMS) to maximize proper command and control

Appropriate use o the mutual aid system (see Guideline 2.4, page 15)

Seeking support o community and public agency resources

Training

Situational awareness

Proper incident documentation

Thorough and complete criminal investigations

Efective strategies and tactics

Objectively reasonable use o orce

Liaison with the media and a well-managed media relationship

Understanding and working with social media and electronic communication


designed or efective response

by law enorcement to crowd

management events.

Guideline

1.2 Principles o Crowd Management
http://www.fema.gov/emergency/nims/IncidentCommandSystem.shtmhttp://www.calema.ca.gov/planningandpreparedness/pages/standardized-emergency-management-system.aspxhttp://www.calema.ca.gov/planningandpreparedness/pages/standardized-emergency-management-system.aspxhttp://www.calema.ca.gov/planningandpreparedness/pages/standardized-emergency-management-system.aspxhttp://www.calema.ca.gov/planningandpreparedness/pages/standardized-emergency-management-system.aspxhttp://www.fema.gov/emergency/nims/IncidentCommandSystem.shtm


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PART 1 Law Enorcement Objectives | 5

Discussion: Stakeholder involvement is critical or efective law enorcement response

to crowd management events. Law enorcement should embrace collaboration with

community stakeholders when planning or and responding to public assemblies and

gatherings.

Community stakeholders may include (not in priority order):

Advocacy groups

Business associations

Civil rights organizations

Elected ocials

Labor organizations

Leaders o local/state government

Neighborhood associations

Religious groups/clergy

Schools/colleges/universities

Special interest groups

Establish procedures to identiy

and liaise with community

stakeholders or the purpose

o developing relationships,

receiving input, and engaging in

collaborative discussion.

1.3 Community Stakeholders

Guideline


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Use the Incident Command System,

an element o the Standardized

Emergency Management System,

when managing crowds.

Discussion: The ICS is considered the model or managing the response to critical

incidents including crowd management and civil demonstrations. SEMS, established by

Government Code 8607(a), incorporates ICS and must be utilized by law enorcement

agencies to apply or potential reimbursement rom the State o Caliornia. Law

enorcements use o ICS is outlined in the Law Enorcement Guide or Emergency

Operations.

SEMS consists o the ollowing ve organizational levels that are activated as necessary:

1) Field Response

2) Local Government

3) Operational Area

4) Region

5) State

The Field Response Level also consists o ve primary Incident Command System unctions:

1) Command

2) Operations

3) Planning/Intelligence

4) Logistics

5) Finance/Administration

The benets o applying the principles o ICS or incident planning and response include:

A unied structure or emergency response

A useul ramework or acilitating the planning process

Clarication o roles and planning or an events logistics and operations

A structure that can be tailored to t the needs o each agency or event

The Law Enorcement Guide or Emergency Operations can be ound on the Caliornia

Emergency Management Agency (CalEMA) website at www.calema.ca.gov.

| 7

2.1 Incident Command System (ICS) and Standardized

Emergency Management Systems (SEMS)

PART 2

Planning and Preparation

Guideline
ftp://www.leginfo.ca.gov/pub/code/gov/08001-09000/8607-8608http://www.calema.ca.gov/LawEnforcement/Pages/Redbook%20Revision%20Sep%202009.dy.pdfhttp://www.calema.ca.gov/LawEnforcement/Pages/Redbook%20Revision%20Sep%202009.dy.pdfhttp://www.calema.ca.gov/http://www.calema.ca.gov/http://www.calema.ca.gov/LawEnforcement/Pages/Redbook%20Revision%20Sep%202009.dy.pdfhttp://www.calema.ca.gov/LawEnforcement/Pages/Redbook%20Revision%20Sep%202009.dy.pdfftp://www.leginfo.ca.gov/pub/code/gov/08001-09000/8607-8608


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PART 2 Planning and Preparation | 9

Discussion: Planning and preparation are essential elements o efective crowd

management. The planning process establishes a oundation or inormed decision-

making and accountability. For pre-noticed events, agencies have the opportunity to

develop in-depth operational plans. Prior planning experiences and ater-action reports

can provide a basic level o guidance and operational consistency when planning or pre-

noticed events and responding to spontaneous incidents.

Law enorcement leaders are encouraged to apply the principles o the Incident

Command System when developing operational plans, to include the use o ICS orms.

Incident/event planning steps may include (not in priority order):

Determining command and control

Identiying incident, operations, and tactical commanders

Outlining the circumstances in which command and control responsibilities

transers to another level

Identiying stang requirements or department operations center and/or

emergency operations center

Identiying and establishing incident objectives

Developing a exible operations plan

Identiying partner law enorcement agencies (local, state, and ederal as applicable)

Considering cross-jurisdictional issues

Contacting police agencies that have prior experience with similar events or groups

Identiying and conerring with other city/county/state agencies that can

contribute logistical support (see Guideline 2.5, page 17)

Determining operational security needs, including:

Counter-surveillance activities

Counter-intelligence activities

Developing protocols or event inormation gathering and disseminating

Meeting with event organizers

Identiy potential protest groups and ofering to meet with them

Meeting with advocacy groups and other stakeholders

Initiate incident/event planning

consistent with the Incident

Command System (ICS).

2.2 Incident/Event Planning

Guideline


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Researching applicable laws/ordinances/regulations

Considering reasonableness o any Time, Place and Manner restrictions

[Mardi Gras o San Luis Obispo v. City o San Luis Obispo, 189 F. Supp. 2d 1018

(2002)]

Reviewing use o orce policies and procedures, including:

Level o authorization required

Authorized equipment/tools/techniques

Reporting protocols

Reviewing parameters and methods or declaring an unlawul assembly

Planning or media contact, including:

Establishing procedures or inormation dissemination

Identiying Public Inormation Ocer(s)

Establishing procedures or media access

Establishing staging area(s)

Outlining crime investigation/arrest protocols

Multi-agency/jurisdictional events

Identiying and arranging or specialized support units (e.g., mounted, bicycles,

other special vehicles, air or marine support, mobile eld orce, haz-mat)

Considering the use o plain-clothes resources

Arranging or adequate administrative/support personnel (e.g., communications,

transportation, booking, records, detention, medical)

Setting up logistical support or ocers

Food and water

Rest intervals

Specialized equipment

Personal protective equipment

Mass-arrest supplies

Spare vehicles and uel

Property and evidence control

Storage

Consideration or bio-hazards

Decontamination




2.2 Incident/Event Planning (cont)

Guideline
http://lib.post.ca.gov/Publications/Crowd/obispo.pdfhttp://lib.post.ca.gov/Publications/Crowd/obispo.pdf


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Considering interoperability issues (e.g., individual communicationsradios, cell

phones)

Developing a communications plan

Identiying available translators when needed

Arranging or other equipment (e.g., barriers, encing, cutting equipment,

containment alternatives)

Arranging or vehicle removal/towing capability

Developing a demobilization plan

Considering post-event scene stabilization to prevent recurrence o unlawul activity

Methods and resources

Short-term requirements

Long-term requirements

Ensuring timely post-event debrieng

Considering soliciting input rom event organizers

Producing a written ater-action report outlining lessons learned and training

opportunities

Establish a retention plan or operational plans and ater-action reports

Reviewing standing plans or efectiveness




2.2 Incident/Event Planning (cont)

Guideline


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Discussion: Be aware o the various types o behaviors associated with crowds that

may result in a law enorcement response. Although crowds tend to be categorized as

either lawul or unlawul, they are oten a blend o both and the individuals involved can

engage in various behaviors. These behaviors can vary rom lawul assembly to individual

criminal acts to civil disobedience to rioting. I easible, law enorcement should identiy

and isolate unlawul behavior.

A sampling o crowds and crowd behaviors (not in priority order):

Crowds

Anarchists

Community celebrations

Crime scenes

Disasters

Entertainment events

Labor disputes

Media events

Mobile crowds

Flash mobs

Parades

Parties/social gatherings

Political events

Product release/commercial activity

Social agenda driven events (e.g.,, abortion, animal rights, jury decisions,

environmental issues, etc.)

Sporting events

Trac collisions

Crowd Behaviors

Lawul

Isolated unlawul

Unlawul

Riotous

Recognize patterns o behavior

and be prepared to respond

appropriately to various types o

crowds.

2.3 Crowd Behavior

Guideline


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Discussion: Agencies should be amiliar with the process and responsibilities o

requesting and receiving law enorcement mutual aid. Large demonstrations and mass

gatherings have the potential to tax the resources o any law enorcement agency.

Agencies should be amiliar with the Caliornia Emergency Management Agency, Law

Enorcement Divisions Law Enorcement Mutual Aid Plan and its companion document, Law

Enorcement Guide or Emergency Operations. Both o these publications are available on

the Caliornia Emergency Management Agency (CalEMA) website at www.calema.ca.gov.

The size and magnitude o an event requiring law enorcement response will dictate the

need or multi-agency coordination and cooperation to eciently provide adequate

mutual aid resources. Critical elements o applying mutual aid to an event will include

pre-event planning (i possible), well-dened missions and objectives, specic uniorm

and equipment requirements, identied staging areas and incident acilities, adequate

briengs, an incident action plan, use o orce considerations, communication plan, arrest

protocols, logistical support (ood, lodging, rest intervals, etc.), and nancial agreements

(i contractual mutual aid or a planned event).

Be amiliar with the Caliornia Law

Enorcement Mutual Aid System

and Plan.

2.4 Mutual Aid & Multi-Agency Coordination

Police

Sheri

RegionalM.A.

Coordinator

StateM.A.

CoordinatorCalEMA

CaliforniaNational

Guard

Police

Situation SeveritySituation SeveritySheri

RegionalM.A.

Coordinator

StateM.A.

CoordinatorCalEMA

CaliforniaNational

Guard

CHPr

esource

s

mayb

euseda

tany

phase

oftheM

utualA

idreq

uestpr

ocess.

Channels or Requesting MutualAid

Guideline
http://www.calema.ca.gov/http://www.calema.ca.gov/


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Commission on Peace Ofcer Standards and Training


Be familiar with the California Law

Enforcement Mutual Aid System

and Plan.

2.4 Mutual Aid & Multi-Agency Coordination (cont)

Los Angeles

Orange

SanB

enito

Monterey

Sonoma

SantaClara

Napa

Solano

Mendocino

Del

Norte

Humboldt

Lake

SantaCruz

SanMateo

SanFrancisco

Marin

ContraCosta

Alameda

San Luis

Obispo

Santa Barbara

Ventura

Shasta Lassen

TehamaPlumas

ButteGlenn Sierra

Yuba

ModocSiskiyou

Colusa Sutte

r

Trinity

Yolo

Placer

Tuolumne

ElDorad

o

Amador

Calaveras

San

Joaquin

Stanisl

aus

Sac

rame

nto

Alpine

Nev

ada

FresnoMe

rced

Marip

osa

Kings

Tulare

Kern

Madera

ImperialSan Diego

Riverside

San Bernardino

Mono

Inyo

IA

VI

I

V

IV

III

II

Law Enforcement

Mutual Aid Regions

Region Counties

I Los Angeles, Orange

IA Santa Barbara, San Luis Obispo, Ventura

II Alameda, Contra Costa, Del Norte, Humbolt, Lake, Marin, Mendocino, Monterey, Napa, San Benito, San

Francisco, San Mateo, Santa Clara, Santa Cruz, Solano, Sonoma,III Butte, Colusa, Glenn, Lassen, Modoc, Plumas, Shasta, Sierra, Siskiyou, Sutter, Tehema, Trinity, Yuba

IV Alpine, Amador, Calaveras, El Dorado, Nevada, Placer, Sacramento, San Joaquin, Stanislaus, Tuolumne, Yolo

V Fresno, Kern, Kings, Madera, Mariposa, Merced, Kern

VI Imperial, Inyo, Mono, Riverside, San Bernardino, San Diego

Guideline


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Discussion: Collaborating with other public agencies and community-based resources

is necessary or efective law enorcement response to crowd management events. Law

enorcement should use available public agency and community-based resources when

planning or and responding to crowds.

Public agency and community-based resources may include (not in priority order):

Adjacent law enorcement agencies (i.e., mutual aid)

Animal control

Caliornia Emergency Management Agency

City Manager/County Administrator

City/County/State Departments o Transportation

Correctional acilities

District Attorney/City Attorney/Agency Counsel

EMS providers/ambulance services

Fire services

Hospitals

Judiciary

National Guard

Parks and recreation

Parole and probation

Public health services

Public transportation

Public works

Red Cross/Salvation Army or other similar service providers

Reuse/waste removal services

Schools/colleges/universities

Social services

Utility companies

Establish procedures to identiy,

develop, and utilize public agency

and community-based resources.

2.5 Public Agency and Community-Based Resources

Guideline


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Discussion: It is important to prepare or incidents through recurring training and

simulation exercises. Command personnel need to understand resources, operational

strategies, capabilities, orce options, and limitations o eld orces as well as the law

and policies. Operational personnel need to understand the law, policy, tactics, and

mission objectives.

Ocer discipline and restraint is an essential component in successully managing

crowds. Discipline is achieved through regular training in the areas o tactical

undamentals and First Amendment rights. Training should be an ongoing process.

Training should be relevant and realistic.

Training may include (not in priority order):

Agency policies and procedures

Arrest and control techniques

Baton/impact weapon techniques

Case and statutory law

Command decision-making

Continuing Proessional Training (CPT)

Crowd dynamics

Incident Command Post and eld exercises

Intervention strategies

ICS/SEMS

Less-lethal munitions (e.g., specialty impact munitions)

Mass-arrest

Media relations

Mobile Field Force

Mutual aid

Nonlethal chemical agents

Supervisory leadership

Tactical decision-making

Team arrest techniques

Note: SeeTraining and Inormation Resources, page 61

Establish procedures to provide

training or law enorcement

command and operational staf in

managing crowds.

2.6 Training or Managing Crowds

Guideline


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| 21

Discussion: Gathering and analyzing inormation about an event can dramatically

increase the efectiveness o an agencys planning and response to incidents involving

crowd management. When estimating the impact o an anticipated event, law

enorcement must consider the need to:

Protect the rights o persons to lawully assemble and express their opinions

Preserve the peace

Deploy ocers or crowd and trac control

The collecting o inormation must be or a reasonable law enorcement purpose and be

mindul o Constitutional rights. A reasonable law enorcement purpose means that the

inormation being collected is intended to:

Assist the agency in acilitating event-related activities

Assist the agency in providing a public saety response

Address unlawul conducteither past, present, or anticipated

Not solely ocus on the exercise o rights guaranteed by the First Amendment

A pre-event assessment may include:

Determining the time o assembly, duration o event, location, and type o

activities planned

Estimating the number o persons expected to participate or observe

Reviewing any previous events involving the same or similar groups

Assess actions and equipment utilized by groups in prior incidents

Analyzing the expected time o arrival and departure, and the means and routes

o travel or participants

Attempt to determine impact on public transportation, reeways and

roadwaysAttempt to determine impact on commerce and public accessibility

Analyze potential activities and hazards along the route

Analyzing the potential or opposing/counter groups

Assessing public saety concerns associated with the event

When gathering inormation about groups and their actions, agencies should coner with

their legal advisor regarding guidelines and court decisions related to the collection and

dissemination o inormation.


to address the collection o

inormation prior to, during, and

ater crowd management events.

PART 3

Inormation Management

3.1 Inormation Gathering and Assessment

Guideline


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PART 3 Information Management | 23

Discussion: Thorough documentation is a key element which supports not only

criminal investigation and prosecution, but also gives an account o law enorcements

response to an event. Documentation should begin with the planning process. Proper

documentation can aid law enorcement to address complaints, civil litigation, and

requirements or potential reimbursement. Agencies should ensure record retention

protocols are ollowed.

Use o orce should be reported consistent with agency policy. Agencies should ensure

that use o orce is accounted or and reported to the Incident Commander prior to the

conclusion o the law enorcement response.

Agencies should anticipate that all documentation, including electronic communications

may be subject to subpoena and Public Records Act, Government Code 62506270

requests.

Methods o documentation may include (not in priority order):

Still photography

Audio recording

Video recording

Written log/journal

Reports (including ater-action reports and any appropriate ICS orms)

Media reports/open source ootage

Communication, dispatch tapes and printouts

Subjects to be documented may include (not in priority order):

Pre-event planning

Incident/Event Action Plan

Records o law enorcement decisions and inormation

Records o law enorcement actions in response to the event

Property damage

Injuries and claims o injuries (participants and law enorcement)

Collective and individual behavior o participants

Individual arrests

Individual ofcers actions

Use o orce

Evidence/property collected

Ater-Action Report

Establish protocols for

documenting crowd

management events.

3.2 Incident Documentation

Guideline
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to address issues o command

and control or efective law

enorcement response to crowd

management events.

| 25

Discussion: Agencies should use the Incident Command System (ICS) as a basis to

structure a law enorcement response to crowd management events. The Incident

Commander is in command o the event. The Incident Commander must establish the

objectives o the incident action plan, consider new inormation, continually re-evaluate

the situation, assess available resources, and balance competing demands to best achieve

incident objectives.

Establishing a clear command structure during an incident is essential. Unity o

command is the concept that each ocer is assigned to only one supervisor. It

clearly identies the individual in charge o any specic group o ocers, unction or

assignment. Unity o command provides or efective management o both pre-planned

and spontaneous events.

When responding to a spontaneous event, individuals o any rank may serve as Incident

Commander until relieved by a ranking ocer. All personnel should be trained in the

Standardized Emergency Management System (SEMS), and, specically, the Incident

Command System.

A key principle or establishing unity o command is that each individual in a command

or supervisory role knows the ollowing:

To whom he/she reports

His/her role, responsibilities, and objectives

What resources are allocated and available

His/her geographical or unctional area o operation

The transer o command, at any level, requires the person assuming command to:

Assess the situation with the current Incident Commander

Receive a brieng rom the current Incident Commander

Determine an appropriate time or the transer o command

Document the transer o command

Notiy others o the change o command

PART 4

Roles and Responsibilities

4.1 Command and Control

Guideline


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PART 4 Roles and Responsibilities | 27

Discussion: A key component to the success o any crowd management event is that

all personnel demonstrate competent leadership, regardless o rank. Efective leaders

are accountable, organized, and decisive; they delegate appropriately, provide clear

direction, and lead by example. Leadership at critical incidents should be guided by their

agencys policies, procedures, and the law.

Leadership responsibilities may include (not in priority order):

Understanding and maintaining ocus on the objectives

Being available or decision-making

Accepting responsibility

Being proactive to reasonably control emotional responses o on-scene personnel

Making adjustments to operational tempo as needed

Communicating throughout the chain o command as required

Instilling condence

Emphasizing teamwork and avoiding individual action

Recognizing and addressing saety concerns o personnel

Continuously reassessing the situation and adjusting the response as necessary

Recognize the essential role o

leadership during any crowd

management event.

4.2 Leadership Responsibilities

Guideline


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PART 4 Roles and Responsibilities | 29

Discussion: Crowd behaviors that result in criminal activity should be investigated and

documented. Statutory ofenses may include, but not be limited to, trespass, unlawul

assembly, ailure to disperse, assault, rioting, vandalism, and conspiracy.

Private persons arrests should be considered when appropriate. Arrests should be

based upon applicable laws and advice rom prosecutors. Conspiracy charges may be

appropriate but are requently overlooked.

Investigative considerations may include (not in priority order):

Identiying crimes

Consulting with city/district attorney prior to and ater the event

Identiying a master report writer/case agent

Identiying an evidence coordinator

Gathering documents that may aid in an investigation (including press releases,

Internet material, signs, banners, etc.)

Obtaining available video evidence

Reviewing each arrest

Recording specic chants with nexus to unlawul activity and, when possible,

identiying who is leading them

Photographing/video recording the event

Maintaining evidence beyond the criminal prosecution, pending potential

civil litigation

Collecting samples o weapons (rocks, bottles, etc.) utilized in the commission

o a crime

Evidence considerations or conspiracy investigations may include (not in priority order):

Clothing and items showing aliation with similar groups

Computers and storage devices

Documents (correspondence, address books, journals, etc.)

E-mailManiestos

Photographs (including criminal activity and assembly site beore and ater)

Posts on social media and Internet sites

Telephone records

Video recordings

Note: Seizures o some o these items may require a search warrant

Establish procedures to investigate

and prosecute criminal activity

that may occur at public

gatherings.

4.3 Criminal Investigation

Guideline


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| 31

Discussion: Lawul gatherings may oten conclude without any need or law

enorcement intervention. Every event should be independently assessed to determine

the tactics that will efectively support and acilitate First Amendment activity, and

provide or public saety. Tactics employed may evoke a positive or negative response

(e.g., a strong show o orce may calm and disperse a crowd or incite them). The

intervention strategies agencies utilize will depend upon available resources and the

totality o the circumstances. Crowds and criminal acts committed by participants

within the crowd require a exible response. Strategies include containment, control,

communication, tactical inormation, coordination and response. Planning or crowd

management incidents should include consideration o contingencies.

Crowd management, intervention, and control strategies and tactical considerations may

include (not in priority order):

Establishing contact with the crowd

Gaining verbal compliance

Supporting and acilitating First Amendment activities

Developing a trac management and/or control plan

Using crowd control and dispersal methods

Protecting critical acilities

Providing a high-visibility law enorcement presence

Note: For a more comprehensive list o considerations, seeAppendix B, page 51.

Develop crowd management,

intervention, and control strategies

to address crowd behavior, either

lawul or unlawul, that impacts

public saety.

PART 5

Crowd Control

5.1 Crowd Management, Intervention, and

Control Strategies

Guideline


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PART 5 Crowd Control | 33

Establish procedures or declaring

unlawul assemblies and issuing

dispersal orders.

Discussion: Law enorcement agencies should understand the law as it pertains

to an unlawul assembly. The decision to declare a crowd unlawul must be based

upon reasonable and articulable acts. The denition o an unlawul assembly has

been set orth in Penal Code section 407 and interpreted in court decisions. The

terms boisterous and tumultuous as written in Penal Code section 407 have been

interpreted as conduct that poses a clear and present danger o imminent violence [ In

re Brown (1973) 9 Cal. 3d 612, 623.].

The intent o a dispersal order is to permanently disperse a crowd, not to merely

relocate the problem. It should be made clear that the crowd is expected to

immediately leave the area, and include a warning that orce may be used which

may inict signicant pain or result in serious injury [Deorle v. Rutherord, 272 F.3d

1272, 1284 (9th Cir. 2001)]. The dispersal order must be given in a manner reasonably

believed to be heard and understood by the intended audience. Based upon the

circumstances, law enorcement may need to consider multiple announcements rom

various locations. Dispersal orders may be delivered in English and in other languages

that are appropriate or the audience. Regardless o how delivered, law enorcement

should record the name o the individual making the statement and the date and time

each order was administered. Dispersal orders should not be given until control orces

are in position to support crowd movement.

Dispersal Order Example I am (peace ocers name and rank), a peace ocer or

the (name o jurisdiction). I hereby declare this to be an unlawul assembly, and in the

name o the People o the State o Caliornia, command all those assembled at (specic

location) to immediately disperse, which means to break up this assembly. I you do not

do so, you may be arrested or subject to other police action. Other police action could

include the use o orce* which may inict signicant pain or result in serious injury. Penal

Code 409 prohibits remaining present at an unlawul assembly. I you remain in the area

just described, regardless o your purpose, you will be in violation o Penal Code 409.

The ollowing routes o dispersal are available (routes). You have (reasonable amount o

time) minutes to disperse.

* Agencies may want to consider including the description o specifc use-o-orce options

(e.g., electronic control device, baton, chemical agents).

Guideline

5.2 Dispersal Orders
http://law.justia.com/cases/california/cal3d/9/612.htmlhttp://www.law.com/regionals/ca/opinions/nov/9917188.shtmlftp://www.leginfo.ca.gov/pub/code/pen/00001-01000/403-420.1ftp://www.leginfo.ca.gov/pub/code/pen/00001-01000/403-420.1ftp://www.leginfo.ca.gov/pub/code/pen/00001-01000/403-420.1ftp://www.leginfo.ca.gov/pub/code/pen/00001-01000/403-420.1http://www.law.com/regionals/ca/opinions/nov/9917188.shtmlhttp://law.justia.com/cases/california/cal3d/9/612.html


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Establish procedures or declaring

unlawul assemblies and issuing

dispersal orders.


Methods that may be used to deliver and document dispersal orders includes

(not in priority order):

Loud speech

Amplied sound

Display o signage indicating unlawul assembly and dispersal

Gaining the attention o the crowd and documenting armative responses o

crowd members prior to the declaration o unlawul assembly

Positioning law enorcement personnel to the rear o a crowd to conrm and

document hearing the transmission o the dispersal order

Acquiring multiple-language capability

Using video/audio recording equipment or documentation o the dispersal order

5.2 Dispersal Orders (cont)

Guideline


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Discussion: The most successul law enorcement strategy or dealing with mass arrests

and bookings is proper planning, training, and comprehensive brieng o involved

peace ocers prior to the event. Mass arrests are dynamic situations that are resource

intensive. Any process must be exible enough to handle challenges that may conront

the eld orce.

Be prepared to utilize various arrest tactics to address unlawul behavior, including:

passive/non-compliant resistance, active resistance, and assaultive and lie-threatening

conrontation.

Maintain accountability o arrestees rom the arrest site (crime scene) through the

booking process. Many cases are lost due to the inability to match up the arresting peace

ocer to the arrestee. The arrest report should articulate each arrestees specic criminal

act(s) and the witnessing ocers. This process will aid in criminal prosecution and the

reduction o civil liability.

A coordinated efort by all involved criminal justice entities is essential to ensure proper

arrest, booking, and prosecution o violators.

Maintain accountability o evidence. Consideration should be given to maintaining

evidence beyond criminal prosecution, pending potential civil litigation.

Mass arrest and booking considerations may include (not in priority order):

Booking/processing area:

On-site, of-site or temporary holding acility

Medical staf

Security (protest groups oten target booking acilities)

Weather issues

Media issues

Designated arrest teams

Armed

Unarmed

Protective clothing

Handcuf-release devices

Develop procedures or

conducting and managing

mass arrests and bookings.

5.3 Mass Arrests and Bookings

Guideline


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Documentation (photo/video/written) o arrests

Date

Time

Location

Ofense(s)

Arresting peace ocer(s)

Identication o arrestees

Disposition

Computer access or records checks, etc.

Telephone access

Designated booking teams

Prisoner transportation

Special needs (e.g., wheelchairs)

Segregation issues

Gender

Gangs

Juveniles

Personal needs issues

Restrooms

Water

Food

Coordination with:

Medical

Jail

Court

District/City Attorney

Probation/parole

Public Deenders Oce

Private attorneys

5.3 Mass Arrests and Bookings (cont)

Guideline


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Sucient handcufs/restraint equipment

Sucient orms/paperwork

Booking orms

Field release rom custody

Field interview cards

Evidence collection/storage o materials

Master report writer/case agent

Public afairs/media relations representative

Public service announcements




5.3 Mass Arrests and Bookings (cont)

Guideline


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Discussion: The law enorcement response to unlawul behavior should be consistent

with the agencys use o orce policy and the law. The reasonableness o orce used to

efect a seizure is determined by balancing the nature and quality o the intrusion on

the individuals Fourth Amendment interests against the governmental interests at

stake. Graham v. Connor, 490 U.S. 386, 396-397 (1989). In determining the governmental

interest, the Court traditionally examines three actors:

1) The severity o the crime at issue

2) Whether the suspect posed an immediate threat to the saety o ocers or others

3) Whether the suspect was actively resisting arrest or attempting to evade arrest

by ight

According to Young v. County o Los Angeles, 655 F.3d 1156, 1163-1166 (9th Cir. 2011),

the Court emphasized that the most important actor is whether the individual posed

an immediate threat to the ocer or to the saety o the public. The Young court reers

to Headwaters I and II, when balancing the nature and quality o the intrusion against

the governmental interests, wherein a suspect is non-violent and poses no threat to the

saety o the ocers or others. See Young, 655 F.3d at 1162 and 1165 (citing Headwaters

Forest Deense v. County o Humboldt, 240 F.3d 1185, 1199-1200, 1204 (9th Cir. 2000),

vacated and remanded on other grounds, 534 U.S. 801. (2001) (Headwaters I); and, see

Young, 655 F.3d at 1167 (citing Headwaters Forest Deense v. County o Humboldt, 276 F.3d

1125, 1129-31 (9th Cir. 2002) (Headwaters II).

Periodically review use o orce alternatives in response to potential actions encountered

during crowd management and unlawul events. Training should reect reasonable

use o orce alternatives so ocers are prepared to consider the tactics/orce options

available; Chew v. Gates, 27 F. 3d 1432, 1443 (9th Cir. 1994). Peace ocers need not use the

least intrusive orce option, but only that orce which is objectively reasonable under the

totality o the circumstances; Scott v. Henrich, 39 F. 3d 912 (9th Cir. 1994), and Forrester v.

City o San Diego, 25 F. 3d 804 (9th Cir. 1994). When easible, prior to the use o a particular

orce option, ocers should consider the availability o less-intrusive measures; Young,

655 F.3d at 1166; Bryan v. McPherson, 630 F. 3d 805, 831 (9th Cir. 2010).

Warnings should be given, when easible, i the use o orce may inict signicant pain or

result in serious injury; Deorle v. Rutherord, 272 F.3d 1272, 1284 (9th Cir. 2001).

In all situations, the orce used must be objectively reasonable under the totality o the

circumstances. Graham v. Connor, 490 U.S. at 397.

Develop use o orce policies,

procedures, and training or

managing crowds engaged in

unlawul activity.

5.4 Use o Force: Force Options

Guideline
http://supreme.justia.com/cases/federal/us/490/386/http://us9thcircuitcourtofappealsopinions.justia.com/2011/08/26/young-v-county-of-los-angeles-et-al/http://lib.post.ca.gov/Publications/Crowd/chew.pdfhttp://lib.post.ca.gov/Publications/Crowd/scott.pdfhttp://lib.post.ca.gov/Publications/Crowd/forrester.pdfhttp://lib.post.ca.gov/Publications/Crowd/forrester.pdfhttp://www.ca9.uscourts.gov/datastore/opinions/2010/11/30/08-55622.pdfhttp://www.law.com/regionals/ca/opinions/nov/9917188.shtmlhttp://www.law.com/regionals/ca/opinions/nov/9917188.shtmlhttp://www.ca9.uscourts.gov/datastore/opinions/2010/11/30/08-55622.pdfhttp://lib.post.ca.gov/Publications/Crowd/forrester.pdfhttp://lib.post.ca.gov/Publications/Crowd/forrester.pdfhttp://lib.post.ca.gov/Publications/Crowd/scott.pdfhttp://lib.post.ca.gov/Publications/Crowd/chew.pdfhttp://us9thcircuitcourtofappealsopinions.justia.com/2011/08/26/young-v-county-of-los-angeles-et-al/http://supreme.justia.com/cases/federal/us/490/386/


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Develop use o orce policies,

procedures, and training or

managing crowds engaged in

unlawul activity.


Use-o-orce considerations may include (not in priority order):

Determining compliance or non-compliance o individuals

Moving non-compliant ofenders

Anticipating possible actions o demonstrators

Identiying criminal violations

Developing arrest protocol

Addressing the use o pain compliance techniques

Planning or physically challenged, elderly, and child demonstrators

Considering the resources available based on the situation

Evaluating availability o other public saety resources

Using personal protective equipment

Planning or the saety o bystanders and the media

Evaluating the mobility o suspects/protestors

Determining avenues o controlled departure

Anticipating potential need or medical resources

Addressing the use o less-lethal munitions and chemical agents

Force options may include (not in priority order):

Law enorcement presence

Verbalization

Control holds

Compliance techniques

Control devices

Nonlethal chemical agents

Electronic control devices (ECD)

Impact weapons/batons

Less-lethal munitions

Deadly orce

5.4 Use o Force: Force Options (cont)

Guideline


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This guideline must be applied in conformance with Guideline 5.4, Use of Force:

Force Options.

Discussion: Case law has determined that the use o nonlethal chemical agents can

cause signicant pain and is an intermediate level o orce; Young v. County of Los

Angeles, 655 F.3d 1156, 1162 (9th Cir. 2011). Since Young held that chemical agents can

inict signicant pain, warnings should be given, when easible, prior to deployment;

Deorle v. Rutherford, 272 F.3d 1272, 1284 (9th Cir. 2001).

Use o nonlethal chemical agents in response to an unlawul assembly may be reasonable

depending on the totality o the circumstances. Each agency should consider when,

where, and how nonlethal chemical agents may be deployed, and consider potential

collateral efects.

Only properly trained personnel should be authorized to deploy nonlethal chemical

agents. Nonlethal chemical agents, protective masks, maintenance, storage, and security

must be addressed by each agency.

Nonlethal chemical agent deployment considerations may include (not in priority order):

Saety o personnel involved

Personnel available

Methods o delivery

Weather conditions

Wind direction

Physical location/terrain considerations

Efect on law enorcement horses

Types o agents available

Protective devices or personnel

Decontamination

Potential exposure to children, elderly, and persons with disabilities

Develop policies and procedures

regarding deployment of nonlethal

chemical agents during incidents

of civil disobedience. Ensure

awareness that the application of

nonlethal chemical agents is

considered an intermediate

level of force and must be

reasonable under the totality of

the circumstances.

5.5 Use of Nonlethal Chemical Agents

Guideline
http://us9thcircuitcourtofappealsopinions.justia.com/2011/08/26/young-v-county-of-los-angeles-et-al/http://us9thcircuitcourtofappealsopinions.justia.com/2011/08/26/young-v-county-of-los-angeles-et-al/http://www.law.com/regionals/ca/opinions/nov/9917188.shtmlhttp://www.law.com/regionals/ca/opinions/nov/9917188.shtmlhttp://us9thcircuitcourtofappealsopinions.justia.com/2011/08/26/young-v-county-of-los-angeles-et-al/http://us9thcircuitcourtofappealsopinions.justia.com/2011/08/26/young-v-county-of-los-angeles-et-al/


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Nonlethal chemical agent policy considerations may include (not in priority order):

Circumstances

Training

Reporting

Types o agents

Appropriate methods o deployment

Identity o person(s) who can authorize the use o nonlethal chemical agents

Identity o person(s) trained to deploy nonlethal chemical agents

Decontamination/observation

Medical attention

Storage, replacement, and inventory accountability

Field issuance, deployment, and accountability or recovery

Protective mask t testing

Multi-agency events


regarding deployment o

nonlethal chemical agents

during incidents o civil

disobedience. Ensure awareness

that the application o nonlethal

chemical agents is considered an

intermediate level o orce and

must be reasonable under the

totality o the circumstances.

Guideline

5.5 Use o Nonlethal Chemical Agents (cont)


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| 43

Discussion: Having an efective media relationship is important to law enorcement

when addressing crowd management incidents. The more that law enorcement interacts

with the media in a spirit o cooperation and transparency, the more accurate the

reporting. In most instances involving crowd management events, it is benecial or an

agency to routinely provide timely inormation rather than simply respond to inquiries.

Media strategies may include (not in priority order):

Assigning a Public Inormation Ocer(s) (PIO) to the event

Complying with Penal Code 409.5

Developing a plan to address non-traditional media in the crowd

Providing a single point o contact that the media can call/access to receive

timely updates

Ensuring timely, accurate inormation about the event

Taking proactive steps to provide inormation rather than merely responding

to inquiriesConsidering dissemination o inormation to the media that may include:

The what, where and when o anticipated activities

Specic parade or protest routes

Locations subject to disruption o normal business or trac

The extent o disruption expected

Alternative routes and/or mass transit alternatives

Inorming the media o law enorcement expectations during a dispersal order(s)

Establishing a media staging area

Considering use o a media pool (camera, radio, print)

Considering embedding media with law enorcement when appropriate

Considering establishing a Joint Inormation Center (JIC)


or acilitating the role o the

media during incidents that

require a law enorcement

response to manage crowds.

PART 6

Media

6.1 Media Strategies

Guideline
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PART 6 Media | 45

Discussion: The use o electronic communication and social media has grown

exponentially over the last decade. People o all ages and organizations o all types

now commonly use a vast array o electronic devices. The efective use o electronic

communication and social media can enhance law enorcement eforts related to

community outreach, investigations, and in other strategic initiatives. Electronic

communication and social media have specic application to law enorcements response

to incidents o crowd management.

Considerations or law enorcement regarding utilization o electronic communication

and social media may include (not in priority order):

Quickly inorming the public and media about events, developments, police

activities, or other announcements in real time

Building relationships with the public, special interest groups, and protesters

Providing ways or the public to communicate with law enorcement, such as

reporting suspicious activity

Inorming crowds by posting instructions to attendees

Communicating with citizens about crime inormation, road closures, etc.

Providing relevant inormation, prior to and during an event

Providing timely warnings, emergency notications, and/or advisories to mass

recipients (e.g., reverse 9-1-1, texting, etc.)

Establishing operational security and identiying legal implications in the ocial

use o electronic communication and social media platorms

Developing agency-specic policies and procedures with regard to the personal

use o electronic communication and social media that includes measures to

ensure operational security.


or the use o electronic

communication and social

media as both an efective

means o communicating

with the community and an

investigative tool.

6.2 Electronic Communication and Social Media

Guideline


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| 47

Anarchist

A person who uses unlawul, violent means to cause

disorder or upheaval

Active Resistance

To intentionally and unlawully oppose the lawul

order o a peace ocer in a physical manner (e.g.,

bracing, tensed muscles, interlock arms/legs, pushing,

kicking, etc.).

Ater Action Report

A report covering response actions, application o ICS,modications to plans and procedures, training needs,

and recovery activities.

Arrest Protocol

The ormal process o placing subjects under arrest,

taking into custody, and associating the arresting peace

ocer(s) with the specic individual arrested.

Arrest Teams

Personnel assigned to arrest duties during civil

disobedience/civil disorder incidents.

Assaultive ResistanceAggressive or combative behavior which attempts or

threatens to assault an ocer.

Booking Teams

Personnel assigned to custodial processing duties

during incidents o civil disobedience/civil disorder.

Chemical Agents

See Nonlethal Chemical Agents, page 49.

Civil Disobedience

An unlawul event involving a planned or spontaneous

demonstration by a group o people.

Civil Disorder

An unlawul event involving signicant disruption o

the public order.

Command

The authority a peace ocer lawully exercises over

subordinates by virtue o his/her rank and assignment

or position.

Compliance Techniques

Reasonable, lawul use-o-orce methods intended to

encourage suspect cooperation.

Compliant Behavior

Behavior consistent with submitting to lawul orders o

a peace ocer without resistance.

Control Devices

Devices intended to assist peace ocers in gaining

control o subjects who reuse to submit to lawul

authority (e.g., batons, electronic control devices,

restraints, chemical agents, etc.).

Cordoning

Surrounding or enclosing a particular problem area;

also reerred to as perimeter control.

Critical Facilities

Any location essential to the well-being and saety o

the community requiring law enorcement protection

during a critical incident.

Crowd

A number o persons gathered together.

Crowd Control

Law enorcement response to a pre-planned or

spontaneous event, activity, or occurrence that has

become unlawul or violent and may require arrests

and/or the dispersal o the crowd.

Crowd Dynamics

Factors which inuence crowd behavior.

Crowd Intervention

Law enorcement response to a pre-planned or

spontaneous event, activity, or occurrence to deal

with isolated unlawul behavior or an impact to public

saety while allowing the event/activity/occurrence to

continue.

Crowd Management

Encompasses law enorcement management,

intervention, and control strategies when responding

to all orms o public assemblies and gatherings. Also

reers specically to strategies and tactics employed

beore, during, and ater a gathering or the purpose o

maintaining the events lawul activities.

APPENDIX A

Terms and Defnitions


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APPENDIX A Terms and Defnitions | 48

Decontamination

Procedures taken to reduce the efects o any nonlethal

chemical agent or bio-hazard exposure.

Discipline

Peace ocer behavior that is consistent with

demonstrating sel-control, teamwork, moderation,

and restraint.

Dispersal Order

Lawul orders communicated by law enorcement

personnel commanding individuals unlawully

assembled to disperse.

Dismounted Tactics

Non-mobile tactical ormations generally involving

team, squad, and platoon-sized units.

Emergency Operations Center (EOC)A location rom which centralized emergency

management is perormed. EOC acilities are

established by an agency or jurisdiction to coordinate

the overall agency or jurisdictional response and

support to an emergency.

Essential Elements o Inormation (EEI)

Critical tactical inormation, obtained rom any source,

received prior to and/or during an event which is

considered so essential that without it, meaningul

planning cannot proceed.

Flash MobA group o people organized using social media to

coordinate meeting at a specic location at a specic

time or entertainment, satire, or, in some cases,

criminal activity.

Flashpoint

Specic location(s) which become the initial source o

unlawul activity and the origin or ocal point o civil

disorder.

Force Options

Reasonable orce alternatives that may be utilized by

law enorcement to efect arrest, overcome resistance,and prevent escape.

Formations

Coordinated unit tactics utilized by law enorcement

to control crowds, stop unlawul activity, and disperse

and/or arrest violators.

Incident Action Plan (IAP)

A written document containing general management

objectives that reect the overall incident strategy and

specic plans using personnel and resources. Incident

Action Plans will vary in content and orm dependingupon the kind and size o an incident.

Incident Command System (ICS)

The statewide model or eld-level management

o emergencies mandated by the Standardized

Emergency Management System (SEMS). ICS is

specically designed to allow its user(s) to adopt

an integrated organizational structure equal to the

complexity and demands o single and multiple

incidents without being hindered by jurisdictional

boundaries.

Incident ObjectivesStatements o guidance and direction necessary or th

selection o appropriate strategy(s), and the tactical

use o resources. Incident objectives are based on

realistic expectations o what can be accomplished

when allocated resources have been efectively

deployed. Incident objectives must be achievable and

measurable, yet exible enough to adjust to strategic

and tactical alternatives.

Leadership

The art and exercise o inuence to obtain willing

compliance, condence, respect, and loyal cooperatio

o personnel.

Less Lethal Impact Munitions

Projectiles launched or otherwise deployed or

purposes o overcoming resistance , preventing

escape, efecting arrest, reducing serious injury and

may be applied without a signicant likelihood o

causing death.

Lie Threatening

Any action likely to result in serious injury or death o

an ocer or another person.

ManagementThe process o planning, organizing, coordinating,

directing, budgeting, and controlling resources.

Mobile Arrest and Booking Teams

Mobile teams designated to assist eld personnel with

mass arrests and processing.


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Mobile Field Force

An organized, mobile law enorcement tactical

orce equipped and trained to respond to unusual

occurrences. The mobile eld orce is currently the

statewide standard conguration known as Mutual AidResponse Mobile Field Force.

Mobile Tactics

The ability to rapidly deploy law enorcement

personnel using vehicles. The vehicles may also be used

or crowd control and containment.

Mob

A disorderly group o people engaged in unlawul

activity.

Mounted Tactics

Crowd control while mounted on horses.

Non-Compliant Behavior

Behavior which does not yield to the lawul order

o a peace ocer but ofers no physical resistance

(sometimes reerred to as passive resistance).

Nonlethal Chemical Agents

Devices utilized by law enorcement agencies which

may include CS, CN, OC, and HC (smoke).

Noticed Events

Public assemblies, demonstrations or crowd events,

which are planned or in advance and allows or

prior notice, whether direct or indirect, to law

enorcement.

Operations Plan

A plan describing the tactical deployment o resources

at an incident or event to meet the objectives o the

Incident Action Plan.

Operations Security (OPSEC)

Methods used to prevent sensitive inormation,

which may compromise the integrity and saety o a

law enorcement operation, rom being improperly

disseminated.

Pain Compliance

Stimulation o nerves or the manipulation o joints to

elicit a sense o unease or distress in a subject, causing

that subject to comply with lawul directives.

Passive Resistance

Reers to intentional and unlawul opposition o a

lawul order o a peace ocer during arrest situations

but involves no physical resistance. (See Active

Resistance).

Perimeter Control

See Cordoning, page 47.

Photographic Teams

Law enorcement photographers assigned to

memorialize designated activity involving civil

disobedience.

Policy

Statements o principles and values which guide

the perormance o a specic agency activity. Policy

establishes limits o action and reects a statement o

guiding principles that should be ollowed in order to

achieve an agencys objective.

Procedure

A method o perorming an operation or a manner

o proceeding on a course o action within the limits

o policy.

Public Disruption

The interruption or disturbance o public order.

Stakeholder

Entities having a legal, proessional, economic or

community interest/responsibility in a public assembl

or gathering.

Sectoring

An overall area o operation and dividing it into sub-

sections based upon geographical and/or dened

boundaries.

Social Media

Communications o social interaction, using highly

accessible and scalable devices, including web-based

and mobile technologies used to promote interactive

dialogue.

Spontaneous Events

Public assemblies, demonstrations or crowd events,

which occur without prior planning and/or without

prior notice to law enorcement.

Standardized Emergency Management System (SEMS)

A system required by Caliornia Government

Code or managing response to multi-agency and

multijurisdictional emergencies in Caliornia. SEMS

consists o ve organizational levels that are activated

as necessary: Field Response, Local Government,

Operational Area, Region and State.

Tear Gas

The term used in the Caliornia Penal Code or what la

enorcement more accurately reers to as nonlethal

chemical agents.


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Unifed Command

In ICS, it is described as a unied team efort, which

allows all agencies with responsibility or the incident,

either geographical or unctional, to manage an

incident by establishing a common set o incidentobjectives and strategies. It maintains agency authority,

responsibility and accountability.

Unity o Command

The concept by which each person within an

organization reports to one and only one designated

person.

Unlawul Assembly

Penal Code Section 407 denes an unlawul assembly

as: Whenever two or more persons assemble togethe

to do an unlawul act, or to do a lawul act in a violent

boisterous or tumultuous manner, such assembly is anunlawul assembly. Boisterous or tumultuous manne

has been interpreted by the courts to mean conduct

which poses a clear and present danger o imminent

violence.


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S

ituationS

everity

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ituationS

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APPENDIX B

Crowd Management Intervention and Control Strategies


Situation Law Enforcement Response

Lawful Assembly

Free Speech and assembly are protected FirstAmendment activities. :

Use CrowdManagementstrategies

Meet with event organizers andstakeholders

Determine the history and risk o the group

Create a planning team

Check permit limitations

Develop Incident Action Plan and objectives

Identiy and assign resources

Monitor and assess crowd behavior

Separate opposing actions

Maintain video log

Provide direction and expectations at roll

call/brieng

Engender acilitation, not conrontation

Interact with organizers and gain their

cooperation

Isolated Unlawful Behavior

Isolated unlawul activity by individuals or

small groups within a crowd should not

automatically orm the basis or declaring an

assembly unlawul. Isolated destruction o property

Isolated acts o violence

Isolated rock or bottle throwers

Individual sit down demonstrators

Use CrowdIntervention strategies

Use organizers and monitors to gain

voluntary compliance

Isolate, arrest and remove law violators as

quickly as possible

Video action o ocers and law violators

Use amplied sound to communicate intent

or to gain compliance

Use low prole tactics when possible. Dont

become the ocus o the demonstration

When it is not possible to make an

immediate arrest, identiy and track

suspects using cameras, observation posts,

an air unit or shadow teams Continue to assess; escalate and

de-escalate as behavior changes

Dont increase crowd tension or change

crowd ocus to law enorcement by

unnecessary aggressive appearance or

behavior

Unlawful Assembly

Assemblies may be dispersed when they are

violent, or pose a clear and present danger

o violence, or the group is breaking some

other law in the process. I a cr ime is occurring,

action may be taken to stop it pr ior to a

Dispersal Order being given.

Per Penal Code 407, two or more persons

assemble to:

Commit an unlawul act or

Commit a lawul act in a boisterous or

Crowd Mg t Guidelines

Documents

Transcript of Crowd Mg t Guidelines