FBI Law Enforcement Bulletin - July04leb

8 Focus on Professional Development PLEAA

11 Crime DataArson Statistics

17 Book ReviewTerrorism

Issues in Small Town Policing By Dennis Lindsey

and Sean Kelly

Kidnapping Investigations By Toni Marie Chrabot

and Winnie D. Miller

The Montgomery CountyCIT Model

By Rodney Hill, Guthrie Quill,and Kathryn Ellis

The Property Room By Barney Kinman

1

Crisis negotiation teams can assist lawenforcement agencies to successfullyresolve kidnapping cases.

Regardless of agency size or servicearea, all law enforcement officers faceincreasing amounts of job-related stress.

12

Departments

ISSN 0014-5688 USPS 383-310

Features

18A crisis intervention team can providelaw enforcement officers with skills tosafely de-escalate situations that involvepeople who are mentally ill.

26 Bulletin ReportsSex OffensesEquipmentWeb-Based ResourcesReference

32 Unusual WeaponCrucifix Knife

United StatesDepartment of Justice

Federal Bureau of InvestigationWashington, DC 20535-0001

Robert S. Mueller IIIDirector

Contributors’ opinions and statementsshould not be considered an

endorsement by the FBI for any policy,program, or service.

The attorney general has determinedthat the publication of this periodical is

necessary in the transaction of thepublic business required by law. Useof funds for printing this periodical hasbeen approved by the director of theOffice of Management and Budget.

The FBI Law Enforcement Bulletin(ISSN-0014-5688) is published

monthly by the Federal Bureau ofInvestigation, 935 PennsylvaniaAvenue, N.W., Washington, D.C.

20535-0001. Periodicals postage paidat Washington, D.C., and additionalmailing offices. Postmaster: Sendaddress changes to Editor, FBI LawEnforcement Bulletin, FBI Academy,

Madison Building, Room 201,Quantico, VA 22135.

EditorJohn E. Ott

Associate EditorsCynthia L. Lewis

David W. MacWhaBunny S. Morris

Art DirectorDenise Bennett Smith

Assistant Art DirectorStephanie L. Lowe

This publication is produced bymembers of the Law Enforcement

Communication Unit, Training Division.

Internet [email protected]

Cover Photo© Digital Vision

Send article submissions to Editor, FBILaw Enforcement Bulletin, FBI

Academy, Madison Building, Room201, Quantico, VA 22135.

July 2004Volume 73Number 7

28Law enforcement agencies shouldensure that their property roomsfunction as effectively as possible.

July 2004 / 1

t is not socially ac-ceptable for law en-forcement officers to

if we can’t handle the stress, weneed to get out.”1

Between 1976 and 1999,more than 1,800 law enforce-ment officers were killed in theline of duty.2 The average of 78dead officers each year is devas-tating.3 All law enforcementprofessionals would do anythingto prevent a fellow officer fromsuffering a violent, premature

death. And, yet, in2000, approximately400 police officerscommitted suicide.4

Even sadder, thosedeaths represent theones reported as policeofficer suicides. Howmany other officershave died at their ownhand due to the stress of“the job”?

To put this insharper focus, 87percent of police depart-ments in the UnitedStates have 25 or fewerofficers;5 hence, the lossof those 400 representsall of the 25 swornofficers in 16 policedepartments. Moreover,suicide in law enforce-ment is three timesgreater than the nationalaverage.6 Between 1950and 1990, the number ofpolice officer suicidesdoubled.7 These griev-ous statistics reveal thetragic toll that stresstakes on those in the

law enforcement profession—atoll that officers themselvesmay not fully realize. After all,who protects the protectors?Who defends the defenders?Who cares for the caretakers?8

The Price of PolicingToday, many police depart-

ments engage in extraordinaryefforts to select qualified

“Ishow emotion…it is a sign ofweakness…a loss of control…and we are trained and pro-grammed to not lose controlunder any circumstances. It isinbred into us in the academy,probationary training, and allaspects of law enforcement that

Issues in SmallTown PolicingUnderstandingStressBy DENNIS LINDSEY, M.Ed.,and SEAN KELLY

© Comstock

2 / FBI Law Enforcement Bulletin

officers. They measure candi-date fitness through writtenexaminations, oral interviews,physical fitness batteries,extensive background investiga-tions, polygraph examinations,and psychological testing. Bythe time an agency selects acandidate, it has spent a greatdeal of money to determine ifthat new officer is physically,mentally, emotionally, morally,and ethically fit to do the job.In some cases, an agency mayspend as much as $100,000 torecruit, select, and train onepolice officer in the first year.

For a small police depart-ment, $100,000 (or any amount)represents a substantial invest-ment and an enormous portionof its budget. This investmentis not trivial, but one that oftenappears at risk of being squan-dered. For example, if it costsan agency $50,000 each year for

the wages and benefits for oneofficer, then, for 10 years, theofficer would cost the agency$500,000. That amount doesnot take into account increasesin salary and benefits, tuition-based training costs, and otherfactors. An accurate figure maybe closer to $600,000 over that10-year period. If the agencyhas not taken the steps torecognize and reduce stress forthat officer and the worst casescenario—suicide—comes tofruition, the monetary cost toreplace that officer with anotherof similar training and experi-ence comes to $1.2 million.What community has that kindof money? But, more important,what about the emotional cost?No one can fix a dollar amounton the welling of emotion, theadditional stress, and the devas-tation felt by the agency’sofficers, their families, and,

most of all, the family of theofficer stressed to the point ofcommitting suicide.

The Physiology of StressRegardless of agency size

or service area, all law enforce-ment officers are subject togross amounts of stress fromnearly the moment they enterthe profession. Most have beentrained to recognize the sourceof external stressors at work,such as police-involvedshootings, violent crime investi-gations, and physical injury.But, what most law enforce-ment officers do not understandis the enormous destructive, ifnot deadly, physiological(internal) effect of stress onthe human body.

Though humans haveevolved socially over the lastseveral thousand years, theirbiological system still is wiredto either attack or run fromdanger (fight or flight). Aspolice officers, this creates aphysical and emotional conflictwith the passing of each call forservice. Under highly emotionalcircumstances, officers mustexercise extreme restraint: whenexcited, they must remain calm;when nervous, they must dem-onstrate their command of thesituation; when in a highlyemotional state, they mustremain stoic. This conflictbetween biology and societalexpectations takes a physicaltoll on officers. Regardless of

Lieutenant Kelly serves withthe Durham, New Hampshire,Police Department.

Supervisory Special AgentLindsey is a senior instructor inthe International TrainingSection, Sensitive InvestigationsUnit at the DEA Academy.

July 2004 / 3

societal expectations of themand despite their outwardappearances, officers respondbiologically the same as thecave dweller: their bodiesexpect them to attack or to flee.As police officers, they arewired to attack; the hiringprocess and subsequent trainingsupport the risk-aggressivepersonality. But, in reality,society expects officers towithdraw or compromise onmost issues, but also demandsthat when danger occurs, theymust remain and fight.

This conflict results, forexample, in officers effecting asearch warrant at a locationwhere they know armed adver-saries await. Similarly, whileothers may flee, they must enterburning buildings to save lives.Officers take inordinate risksthat ordinary citizens do notconfront. In the end, theirbodies pay the ultimate price.Human biology cannot beovercome; the emotional energythat officers hold in over aperiod of years on the job willtake its toll.

How much does an officer’sbody deteriorate? The lifeexpectancy in the United Statesis 74.4 years for men and 80.1years for women.9 In a 40-yearstudy, police officers with 10to 19 years of service had anaverage age of death of 66years.10 The research found a“significantly increased riskof digestive and hematopoietic

cancers among police officerswho have 10 to 19 years” on thejob; these findings concurredwith other studies that theorizeda link between cancer andstress.11 This same period ofemployment linked stress withmaladaptive behaviors, such asalcohol and tobacco use, andfindings indicated that officers

powders is linked to cerebrovas-cular and other diseases.14

The Stress of SmallTown Policing

Police officer suicide doesnot happen without warningsigns. Some may be as overt asan officer being involved in ashooting. Agencies know thatsuch officers (and their fami-lies) need intervention to assistthem in coping with the takingof another human life. Often,however, no single traumaticincident leads to an officercommitting suicide. Morelikely, it is cumulative stressthat has impacted the humanbody over time that leads to thephysical desperation that thenleads to the mental and emo-tional desperation that ulti-mately results in suicide.15

Each day, officers girdthemselves for the dangers andrigors of the job. When they gooff duty, the process of “comingdown” begins to take effect onthe body and mind. Havingbeen hypervigilant for theduration of the shift, the bodydemands downtime to preserveitself. However, family life andthe day-to-day activities ofliving require the body tocontinue pushing.

Demands by the body torelax and rejuvenate conflictwith the needs of a healthyfamily life. Because of their lineof work, officers often receiverequests for legal advice while

have a significantly high mortal-ity risk of esophageal cancerand significantly elevated riskof cirrhosis of the liver.12 Cir-rhosis of the liver was elevatedin officers with only 9 years onthe job. Officers with 30 yearson the job increased theirmortality rate more than threetimes.13

Exposure to radar may leadto increased risk of testicle,breast, and prostate cancer.Exposure to gun cleaning sol-vents, carbon monoxide, andother hazardous materials onthe highway may promote heartand kidney diseases. Lead fromfirearms training and fingerprint

”

Officers constantlyface the inability

to come down from ahypervigilant state,

causing their bodiesto deteriorate further

and faster.

“


attending family functions.Or, when at a party with theirspouses’ friends, they mustrespond to questions about apolice officer’s conduct in anagency 3,000 miles away. Anevent that is supposed to be fun,that is supposed to invigoratethem, and that is supposed to beenjoyable becomes another timewhen they suddenly must put onthe shield and wear their “cophat.” Officers constantly facethe inability to come down froma hypervigilant state, causingtheir bodies to deterioratefurther and faster.

Police officers who live andwork in small towns almostnever have an opportunity todecompress. Being well knownto the residents, business own-ers, and others in the commu-nity, officers cannot separateon-duty and off-duty time.Essentially, small town policeofficers live in a fishbowl. Off-duty trips to the store frequentlybecome job related because

calls for service may provegreater than that of officers inlarger communities with backupat their immediate disposal. Theobvious reason for this is thatthey could be facing dangeralone. The less obvious reason,however, is that they have notshared the experience withanother officer. Lone officerscannot verbalize their experi-ences, their emotions, or theirreactions. Their first opportu-nity to express their anxietycould be at the shift changeseveral hours later. The passageof time can have devastatinglong-term effects on an officer’sability to decompress from theincident and the accumulatedstress that it produced.

Finally, officers in smallpolice departments face thehazards of post-traumatic stressdisorder (PTSD) as often astheir fellow officers employedby large law enforcementagencies. Estimates indicatethat “roughly 4 percent of all

everyone seems to know theofficers and their family ve-hicles. Spouses often comeunder close observation becauseresidents may think “that cop”is driving past or, simply,because they are the spouse ofa police officer. Taking theirchildren to school becomescomplicated when other parentswonder out loud why officersare not at work or when aschool administrator asks foradvice about an unruly childor parent. All of this “off-duty”interaction disallows decom-pression and contributes tostress and the deterioration ofthe small town police officer’sbody.

In addition to these dailystressors, small town policeofficers often find themselves inthe unenviable position of beingthe only officer on duty. Thenearest backup may be in atown or county many milesaway. The level of stress thatthese officers feel as a result of

About 15 years ago, I responded to a report of a suicide in progress. Though manyyears have passed, I can describe in graphic detail what that shotgun-in-the-mouth suicidescene looked like. It wasn’t in progress. It had happened more than 8 hours earlier in thebackyard of a trailer on a hot August day. Animals had scavenged. Routine? Hardly.Stressful? You bet! Counseling, postincident debriefing? Not a minute. Impact on mymind and body? Probably nobody will know. But, we now know that these incidentslikely are a part (small or large) of accumulated stress experienced every day by smalltown police officers.

—Lieutenant Sean Kelly

Stress Accumulation

July 2004 / 5

emergency workers will de-velop post-traumatic stressdisorder.”16 In general, “ex-amples of trauma that are likelyto cause PTSD (in order ofseverity) include natural disas-ters; serious accidents; seriousaccidents where a person is atfault; intentional life-threaten-ing violence by another person;life-threatening trauma causedby betrayal by a trusted indi-vidual; and life-threateningtrauma caused by betrayal bysomeone you depend on forsurvival.”17 For police officers,a more specific list of stressorswould include “killing someonein the line of duty; having yourpartner killed in the line of duty;lack of support by the depart-ment/bosses; shift work anddisruption of family time/familyrituals; and the daily grind ofdealing with the…public.”18

Applied to small townpolicing where every officer isexpected to be the first re-sponder to nearly every mannerof human tragedy, PTSD readilyexists. It may not result from asingle incident, but, rather, fromthe accumulation of stress overa period of time, then triggeredby a particular incident that fallswithin the recognized causes.

In small town policing,officers generally live and workin the community that theyserve. In these tight-knit locali-ties where officers know theresidents and, in turn, where theresidents know them, other

contributing factors make thepresence of PTSD even morelikely. These include “personalidentification with the event;knowing the victim; lack ofpreparation or lack of knowl-edge of the event ahead of time;the severity and intensity of theevent; accumulative exposure toPTSD-causing events; preexist-ing PTSD; and helplessness”19

(real or perceived). “No matterhow experienced (cops) are orthink (they) are, there areincidents (they) may experience

without even thinking aboutit.”20

In small towns wheretraumatic events often do notoccur back-to-back, officersshould have an opportunity todecompress after a stressful callfor service or incident. How-ever, because the communityis small and because the taxdollars that support the agencycome from the local residents,the police department usuallyremains under a magnifyingglass. When citizens see policecars parked at the station, theymay complain that the officersare not working. This scrutinymeans that despite the greaterpotential of a small town officerto decompress by getting out ofthe public’s eye after an inci-dent, they remain on patrol,simmering their own fatal brew.

The Need to InterveneSmall agencies, as well as

large ones, often risk squander-ing the investment in theirofficers by not taking steps toidentify stress in its early stagesand working to reduce or elim-inate the culture that preventsofficers from seeking assis-tance. Agencies must not ignoreearly warning signs of stress,such as citizen complaints,declining quantity and qualityof the work product, decreasingscores on performance apprais-als, failing personal relation-ships, and sudden changes inthe personal appearance and

or witness that affect (them)deeply emotionally. Our reac-tion to these experiences is todo what we have always doneand been trained to do. We setaside our feelings and dealwith the incident. Our job, andsometimes survival, demands it.Afterwards, we don’t make aconscious effort to deal or notdeal with our feelings, we justmove on to the next incident(regardless of whether thesubsequent incident is today,tomorrow, or next month)

”Each day, officersgird themselves

for the dangers andrigors of the job.

“


grooming habits of affectedofficers. With regard to policesuicides, the prelude symptomsinclude divorce, increased useof alcohol (not necessarilyalcoholism), depression, and afailure to get help.21 “Policeofficers going through a divorceare five times more likely tocommit suicide than an officerin a stable marriage. The na-tional divorce rate is 50 percent.All research shows policeofficers suffer a substantiallyhigher (divorce) rate withestimates ranging between 60and 75 percent.”22 Agenciesmust ensure that their officersaddress such problems andreceive qualified assistance insolving them.

Agencies must encouragetheir officers to have outsideinterests and hobbies and tobalance dedication to the de-partment with an equal devotionto family, friends, and personalinterests. Agencies must pro-mote the importance of such abalance and ensure that theirofficers recognize the dangerouscycle that puts them at risk:by working longer and harder,they will be rewarded so thatthey will work longer andharder. This can result in di-vorce, estrangement fromchildren, chemical dependency,and, ultimately, prematuredeath.23 Agencies must fightagainst such a mind-set evenin today’s challenging environ-ment where they must do morewith less...and less...and less.

If not, in the end, their officersmay pay a price far too highfor the savings in a line-itembudget.

The culture of police workalso must change. While theirrecruitment methods mustreflect the need to hire the finestpeople available, agencies mustthen prove their fidelity to theseofficers by supporting them atevery moment of their careerand home life. Police training

of officers and their familiesin addition to the traditionalratings that reflect the ability tocomplete job tasks. After all,the two are inexorably linked.Police administrators need tolook at the agency missions andask themselves if they remainrelevant. Are the tasks thatofficers must perform stillrelevant? Do they fit the needsof the community? Are theirofficers thought of as membersof the community? Are theirfamilies included as part of thecommunity? Do agency rules,regulations, policies, and proce-dures reflect the need for offi-cers to decompress? Do theiractions support their claims of“family first”? For example,instituting a simple regulationthat requires all officers (andtheir families) to attend andsuccessfully complete crisiscounseling immediately follow-ing any type of traumatic inci-dent can reduce the stigma ofseeking help. Making suchcounseling commonplace willstart an evolution of necessarychange.

Finally, officers themselvescan take simple steps to helptheir bodies resist the debilitat-ing effects of stress. Amongother things, they should—

• eat a carefully balanceddiet;

• drink plenty of fluids (caf-feine free);

• avoid the use of tobaccoproducts;

academies must create anenvironment of nurturingsupport so that officers will bebetter able to police a commu-nity of people, not suspects.This does not mean, in any way,the lessening of physical andtactical training, but quite thecontrary. Theorists indicate thatpeople intensely trained toexpect and react to stress-inducing incidents respondbetter physically and emotion-ally in both the short and longterm.

Further, performance evalu-ations should reflect the needs

”

Under highlyemotional

circumstances,officers must

exercise extremerestraint....

“

July 2004 / 7

• exercise aerobically on adaily basis;

• sleep a minimum of 8 hoursin every 24 (“a person keptawake for 17 hours willperform at a standardcomparable to that ofsomeone with a bloodalcohol concentration(BAC) of 0.05 percent.After 24 hours withoutsleep, a person will havecapabilities similar tosomeone with a BAC of0.10 percent”24);

• schedule time forthemselves;

• take vacations, not just aday off, because the bodyrequires at least 72 hoursto adjust to the mind-setof not being at work;

• designate time for hobbies;and

• have a complete annualphysical, including bloodtesting for cholesterol,lead, and all high-riskblood-borne diseases.

Conclusion

Today’s world of terroristsand increasingly violent crimi-nals presents highly stressfulchallenges to law enforcementofficers in all American com-munities, whether large orsmall. Job-related stress doesnot limit itself to those officersin large, urban areas but impactsthose in small, rural localities aswell.

Clearly, 400 police officersuicides each year is not accept-able. The law enforcementcommunity must not allow thisto continue; society must notallow this to continue. Only byrecognizing suicide as theultimate indicator of the over-whelmingly stressful professionthat law enforcement hasbecome can efforts be found tohelp its members not only copewith the stress but to enjoy long,healthy lives. Those who havechosen the roles of protector,defender, and caretaker deserveno less.

Endnotes1 “Police Officers and Post Traumatic

Stress Disorder”; retrieved May 10, 2004,from http://www.home.socal.rr.com/jpmock/ptsd/ptsd.htm.

2 U.S. Department of Justice, Bureau ofJustice Statistics; retrieved from http://www.ojp.usdoj.gov.

3 While assigned to the Leadership andEthics Unit at the DEA Academy as part ofa fellowship program for state and localpolice officers, Lieutenant Kelly discussedthe impact of stress on the daily lives oflaw enforcement with Special AgentLindsey. They shared what they knewabout stress, suicide, and small policedepartments. As their interest grew, so didtheir research. This article presents asummary of work already published oravailable on the Internet. They hope thatby bringing this information to theforefront, law enforcement administratorswill take steps to recognize and reducethe effect of stress on their officers. Thoseinterested in discussing the issue furthermay contact Special Agent Lindsey at703-632-5163 or at [email protected] and Lieutenant Kelly at 603-868-2324 or at [email protected].

4 National P.O.L.I.C.E. Suicide Foun-dation; retrieved May 10, 2004, from http://www.psf.org.

5 International Chiefs of Police (IACP)Research Center, Big Ideas For SmallerPolice Departments, 2002.

6 T. Baker and J. Baker, “PreventingPolice Suicide,” FBI Law EnforcementBulletin, October 1996, 24-27.

7 J.M. Volanti, “The Mystery Within:Understanding Police Suicide,” FBI LawEnforcement Bulletin, February 1995,19-23.

8 For a comprehensive overview ofpolice officer suicide, see Donald C.Sheehan and Janet I. Warren, eds., U.S.Department of Justice, Federal Bureau ofInvestigation, Suicide and Law Enforce-ment (Washington, DC, 2001).

9 CIA World Fact Book, “InteractiveTable of World Nations” (July 1, 2002);retrieved on May 10, 2004, from http://www.mrdowling. com.

10 John M. Violanti,“Study ConcludesPolice Work Is a Health Hazard,”American Police Beat, November 2002.

11 Ibid.12 Ibid.13 Ibid.14 Ibid.15 For additional information, see

Donald C. Sheehan and Vincent B. VanHasselt, “Identifying Law EnforcementStress Reactions Early,” FBI LawEnforcement Bulletin, September 2003,12-17.

16 Supra note 1.17 Supra note 1.18 “The Effects of Stress on Police

Officers,” text of speech by Dr. DanielGoldfarb to union delegates; retrieved onMay 10, 2004, from http://www.heavybadge.com.

19 Supra note 1.20 Supra note 1.21 Supra note 18.22 Supra note 18.23 For additional information, see

Gerald J. Solan and Jean M. Casey,“Police Work Addiction: A CautionaryTale,” FBI Law Enforcement Bulletin,June 2003, 13-17.

24 Australian Transport Safety Bureau,Driver Fatigue: An Accident Waiting toHappen; retrieved on May 10, 2004, fromhttp://www.science.org.au/nova/074/074sit.htm.


aw enforcement agencies throughout theworld recognize the importance of profes-L

sionalism and have worked diligently to have thepublic view their departments, as well as theirofficers, as professionals. Many have included thecore value of professionalism—which not onlyapplies to sworn officers but extends to those em-ployees who provide support services—either intheir mission or vision statements.

While they endorse the concept, many depart-ments struggle with how to meet training mandatesfor their sworn personnel, as well as how to keepofficers abreast of changing trends. Along withthese challenges, however, agencies also mustmake training opportunities available for their sup-port staffs. Although law enforcement officershave the visible day-to-day contact with commu-nity members, support personnel prepare reports,answer phones, handle payrolls, and coordinatemeetings—important jobs that hold agencies

together. Professional development can help sup-port employees better understand how their posi-tions fit into the policing service delivery systemand provides an opportunity for them to becomerefreshed and inspired. After all, the need to en-hance their occupational skills and develop profes-sionally proves equally important for law enforce-ment administrative personnel as for officers.

William James, a 20th century scholar, said,“Mankind does nothing save through initiatives onthe part of inventors, great or small, and imitationby the rest of us—these are the sole factors activein human progress. Individuals of genius show theway, and set the patterns, which common peoplethen adopt and follow. The rivalry of the patterns isthe history of the world.”1 A small group of admin-istrative support personnel from several Minnesotalaw enforcement agencies have taken that giantleap of faith and shown their agencies, chief execu-tives, and officers that they have the initiative to beinventors.

The Beginning

In 1998, the FBI’s Minneapolis office spon-sored a 2-day seminar on professionalism. Al-though originally intended for FBI professionalsupport employees, the coordinators decided toinvite administrative support personnel from otherlaw enforcement agencies in the Minneapolis-St.Paul area as well.

Several law enforcement administrative assis-tants realized that this seminar was the first timethey and their peers had received relevant lawenforcement training from someone who actuallyhad performed comparable tasks (the instructorpreviously had served as a secretary in the FBI).Further, the instructor understood the uniquenessand importance of the duties that professional sup-port employees perform. One participant advised,“[The instructor] was able to understand our ques-tions in the context of law enforcement, she taughtthe class using law enforcement language, and sheknew how to apply what she was teaching to ourpositions in the various police agencies.”

Focus on Professional Development

The Professional LawEnforcement Assistants’AssociationBy Debra S. Beebe, M.Ed., and Joy Rikala, M.A.

July 2004 / 9

During the first day of training, several partici-pants agreed to get together for additional trainingin the future. Many had spoken to each other on thephone, coordinating meetings for the police ad-ministrators they worked with, but they never hadmet in person. The networking that began duringbreaks created the impetus to form an association.As a final learning activity during the seminar,participants wrote a letter to themselves statingwhat they learned during the 2 days and what stepsthey planned to take upon returning to their work-places. The instructor then collected the lettersand, 6 months later, mailed them back to the par-ticipants as a “self-check-in.” One of the attendeeshad written in the letter to her-self to start an organization oflaw enforcement professionalsupport personnel throughoutMinnesota.

In early 1999, eight of theoriginal seminar participants be-gan Minnesota’s first associationfor law enforcement support per-sonnel. They started by drafting amission statement to 1) encour-age and promote a high degree ofskill and efficiency for the mem-bers, 2) provide relevant law en-forcement training, 3) establish cumulative rela-tionships through a strong networking system,4) ensure more uniformity in their services, and5) enable members to provide enhanced profes-sional assistance to chief law enforcement officersand member departments, which, ultimately,would benefit communities they serve. Partici-pants established a mailing list, began a letter cam-paign to gauge interest in the association, and de-cided to meet once a month to chart the course oftheir venture.

Next, the group agreed that their associationneeded a name. Members agreed that they wantedthe word assistants in the title to be more inclusiveof the varied positions and job titles held at theiragencies and that the word professional was

extremely important to them; they wanted to setthe tone for their new organization. Subsequently,the Professional Law Enforcement Assistants’Association (PLEAA) was born.

IdeologiesPLEAA members identified professionalism

as an important behavioral expectation and soughta way to define it as it pertained to their positionsand what they hoped to accomplish through theirorganization. They determined that professional-ism is an individual quality; employees who per-form assigned tasks with great skill and pride,maintain high ethical standards, and exhibit a

courteous, conscientious, andbusinesslike manner in theworkplace typically define pro-fessionals. These attributes,skills, and even a sense of pridereflect positively on their depart-ments. PLEAA members con-cluded that professionalismcomes from within a person; noamount of money can buy it.

Members agreed that con-tinual or life-long learning con-stitutes an important aspect ofPLEAA. Because members’ po-

sitions in law enforcement are unique, they havefound it difficult to receive relevant training fromthe private sector. For example, not only doPLEAA members serve as administrative assis-tants but some are in charge of their department’sproperty room, serve as record clerks, performhuman resource functions, and even work on theirdepartments’ reconstruction projects. Further,some members search female prisoners in the ab-sence of female officers and others have trans-ported children in crisis to the local children’scrisis center. Assistants’ positions in law enforce-ment do not stay the same; changes in the courtsand prosecutor’s offices and adjustments thatcome with transitions in police administrationsoften impact their job-related duties.

““

”

…the core value ofprofessionalism…notonly applies to swornofficers but extendsto those employeeswho provide support

services….


PLEAA views networking as an extension oftraining. Members contact each other for help withspecific issues, as well as to identify new ideas tobring back to their agencies. Training sponsoredby PLEAA, as well as member networking, hasgreatly improved services to departments and com-munities. An added dimension to the training—scheduled field trips to a crime lab, a new countydetention facility, the medical examiner’s office,and a firearms range—has given members insightinto areas previously unknown to them. Many ofthese employees had processedpaperwork relative to these fourlaw enforcement functions, butnever had the opportunity to ob-serve what happens outside theconfines of their departments.The field trips offered PLEAAmembers a tool to network withindividuals they have daily con-tact with and enabled them tounderstand the necessity for thelarge volume of paperwork/re-ports needed by each site. Forexample, the visit to the crimelab gave them a clearer under-standing of the importance ofproperly handling evidence. Each member gaineda new perspective and more respect for each of theagencies visited. They saw firsthand 1) how themedical examiner’s office deals with victims andsurviving family members, 2) the difficulties at thejail associated with properly guarding prisonersincarcerated for long periods of time, and 3) howwell their own officers are prepared and properlytrained at the firearms range.

PLEAA uses other networking/training toolsas well. For example, the association publishes aquarterly newsletter, Information PLEAAse, andone PLEAA member writes regular columns thatprovide useful professionalism information.PLEAA distributes a yearly roster of all its mem-bers that includes their agency addresses, tele-phone and fax numbers, and e-mail addresses,

which helps everyone stay in touch. Both the news-letter and roster constitute key elements inPLEAA’s networking process.

ResultsPLEAA currently has approximately 250

people on their mailing list, consisting of 165 dues-paying members from 80 Minnesota agencies in2003. PLEAA does not exclude people from at-tending their training session if their departmentseither will not or cannot pay the yearly member-

ship dues. The only differenceis that nondues-paying mem-bers pay a slightly higher regis-tration fee for training sessions.

Many of the members’chiefs, sheriffs, and other topadministrators have showntheir strong support of PLEAAby providing law enforcement-related training; in some in-stances, they have conductedthe training themselves. Theprofessional relationship be-tween PLEAA members andtheir executives continues togrow and develop. In early

April 2003, chiefs in one Minnesota locality heldtheir 4th annual luncheon; 85 percent of the depart-ments brought their assistants. One assistant saidthat during the first chief’s association meeting sheonly knew a couple of the assistants and about fivechiefs. As a result of PLEAA, she now knows andnetworks with all of the assistant and about 75percent of the chiefs.

The Rochester, Minnesota, Police Departmenthosted PLEAA’s first 2-day conference in 2002.One instructor addressed motivation and otherscovered such topics as “The How and Why ofInternal Affairs Investigations,” “Self-defenseTraining,” “Laser and AED Demonstrations,” and“Everything You Ever Wanted to Know from YourChief, But Were Afraid to Ask.” Also, the firstannual “Debra Beebe Outstanding Mentor Award”

““

”

Many of the members’chiefs, sheriffs, and

other top administratorshave shown their strong

support of PLEAA byproviding law

enforcement-relatedtraining….

July 2004 / 11

Ms. Beebe, an instructional systems specialist, currently headsthe FBI’s Curriculum, Planning, and Evaluation Unit in theOffice of Training and Development.Chief Rikala is the director of public safety and the chief ofpolice for the Minnetonka, Minnesota, Police Department.

was presented to one chief for her support ofPLEAA within chief’s organizations during theassociation’s developmental years.

ConclusionSome of the original eight law enforcement

assistants have taken other positions, but new,dedicated members have replaced them. Oneoriginal member recently stated, “To accomplishgreat things, we must not only act but also dream;not only plan but also believe.” It was not onlytheir belief but the hard work, leadership, andvision of eight law enforcement assistants fromMinnesota who helped form a professional organi-zation for support personnel in policing. Throughtheir dedication and initiative, PLEAA has filled avoid in support training and networking, and it hascreated a forum to enhance those individuals whoperform such a critical role for law enforcementorganizations.

PLEAA not only has made history in Minne-sota but also has made a difference in the entire

law enforcement community. As professionals,agencies take many of the members more seriouslybecause of their involvement in the organization.Further, members have raised their level of visibil-ity with chiefs, sheriffs, and officers throughouttheir departments. The level of respect for theseprofessionals has risen due to their commitment tocontinuing education and their willingness to learnmore about and become more involved in the en-tire criminal justice system.

Endnotes

1 William James, “The Social Value of the College-Bred,”address delivered at a meeting of the Association of AmericanAlumnae at Radcliffe College on November 7, 1907; retrieved onMarch 8, 2004, from http://www.emory.edu/EDUCATION/mfp/jaCollegeBred.html.

ccording to statistics released by the FBI’s Uniform Crime Reporting (UCR) Program inits annual publication, Crime in the United States, 2002, law enforcement agencies

Crime Data

Arson Statistics

Areported a total of 74,921 arson offenses during 2002. According to available supplemental data,the average dollar loss was $11,253. By property type, the average loss for structural propertydestroyed by arson was $20,818, the figure for mobile property was $6,073, and the average forother property types was $2,536.

Law enforcement agencies collectively cleared 16.5 percent of arsons. Forty-three percentcleared in 2002 involved juvenile offenders. Nearly half (49.4 percent) of arson arrestees wereunder age 18. Overall, 67.8 percent were under age 25. Males comprised 84.8 percent of personsarrested for arson; of these, 51.7 percent were under the age of 18. Thirty-seven percent of thefemale arrestees were under age 18. The complete report is available online at http://www.fbi.gov.


ndoubtedly one of themost traumatic experi-ences a family can face,U

a kidnapping also severelychallenges the law enforcementagency responsible for success-fully resolving the situation. Insuch difficult circumstances,however, agencies can turn toan effective aid—crisis negotia-tion teams.1 These teams fill aunique and effective role thatultimately benefits the on-scenecommander, investigativepersonnel, and the victimfamily. The true value of a crisisnegotiation team’s assistance,however, often does not become

apparent until the kidnappingends. The grandson of an 88-year-old victim shared histhoughts about how an FBIcrisis negotiation team helpedhim endure his grandmother’skidnapping. He believed thatthe negotiators who remainedwith him during the 2-dayordeal were extremely valuablebecause of the information theyprovided, along with theirexperience, knowledge, andwisdom. He stated, “I had that[experience, knowledge, andwisdom] at my fingertips. I hadanswers to my questions inregard to how I might negotiate,

how the transaction mighthappen, how the transfer mightgo down, what to say, how topersonalize my messages, howto communicate effectively.”

One of the crisis negotiationteam’s primary responsibilitiesin any critical situation is tosupport the overall investigativeeffort. In the case of a kidnap-ping, the crisis negotiation teamworks closely with the victimfamily members. The teamestablishes a negotiation opera-tions center, makes assessmentsof family members, and guidesand supports them through whatis likely their darkest hour. The

Kidnapping InvestigationsEnhancing the Flow of InformationBy TONI MARIE CHRABOTand WINNIE D. MILLER

© Mark C. Ide

July 2004 / 13

Special Agent Miller is assignedto the Crisis Negotiation Unit,Critical Incident ResponseGroup at the FBI Academy.

Special Agent Chrabot formerlyserved in the Crisis NegotiationUnit, Critical Incident ResponseGroup at the FBI Academy.

team, using its negotiationtraining, develops strategies toreduce the subject’s expecta-tions, to respond to threats anddemands, and, most important,to seek the safe return of thevictim.

Establish NegotiationOperations Center

A crisis negotiation teamtypically sets up a negotiationoperations center within thevictim family’s residence orplace of business, whicheverseems the most likely point ofcontact by the subjects. Theteam members immerse them-selves with the family; in doingso, personnel can observe andconverse with family memberson a consistent basis, continu-ally gleaning informationregarding the victim, includingpast behaviors and routines, andthe situation. This immersionwith family members servesseveral more purposes. It limitsthe traffic in and around thevictim family’s residence;demonstrates the commitmentand dedication to the saferecovery of their loved one;enables investigators to focuson investigative leads; andprovides the on-scene com-mander and investigativepersonnel with real-time,accurate information. Negotia-tors can address questions frominvestigators or commandersimmediately with the family.

By the same token, if the familyhas questions about the investi-gation, negotiators can addressthese as well. This clearlybecomes an effective andefficient means of obtainingand disseminating informationpertinent to the kidnappingand takes full advantage ofthe capabilities of the negotia-tion team.

To successfully fill such animportant role, the crisis nego-tiation team must be welltrained, disciplined, and orga-nized. The team, along withother investigators, shouldparticipate in the initial debrief-ing of the family members.Other members of the crisisnegotiation team will beginequipment set up, designed tocapture any future communica-tion with the subjects.

In an effort to be the leastintrusive, the crisis negotiationteam should seek to establishthe negotiation operationscenter in a suitable place withinthe residence or building wheremembers can answer anddiscreetly monitor calls. Thenegotiation operations centeralso should have an area wherethe team can conduct privatemeetings, hold shift-changediscussions, and conduct tele-phone conversations withinvestigators, yet offer sufficientprivacy to the family. Teammembers and investigatorsshould avoid conducting brain-storming or case discussionswhere family members inad-vertently may overhear theirremarks because the family maymisinterpret such discussions asdisagreements or inexperience.


Assess Family MembersUpon arrival at the resi-

dence, crisis negotiators imme-diately begin to assess familymembers to determine thosebest suited to serve as thespokespersons, usually referredto as third-party intermediaries(TPIs).2 The crisis negotiationteam will select, coach, androle-play with the anticipatedTPIs. The coaching and role-playing act as an invaluableexercise with the family mem-bers to help them become morecomfortable with the conversa-tions, threats, or demands theymay encounter and to rehearsetheir responses. This practicealso enables the negotiationteam to observe and assess whois the most coachable, the mostreliable, and the most able tohandle the challenge of servingas the TPI, thereby followingone of law enforcement’s well-known theories—the manner inwhich officers train directlyrelates to the manner in whichthey perform.

The family members of akidnap victim often becomeoverwhelmed with a wide rangeof emotions. Some familymembers may feel the need to“do something,” while othersare sad, angry, confused, ordistraught. The fundamentalaspect of the crisis negotiator’scraft is active listening.3 Theteam’s skill in identifying andlabeling these wide-rangingemotions serves to comfort the

family, demonstrates empathy,and establishes and buildsrapport. From this growing anddeveloping relationship, thevictim family becomes more atease and cooperative and, mostimportant, increasingly confi-dent in the abilities of law en-forcement to secure a successfuloutcome.

enforcement becomes involved.During this critical time, familymembers should seek to person-alize the victim and ask for“proof of life.” Ideally, thisinvolves talking directly to thevictim. In lieu of this, negotia-tors should help the family crafta question that only the victimcan answer, such as “What wasthe name of your pet dog whenyou were 9 years old?” Inpersonalizing the victim, nego-tiators should advise familymembers to highlight variousfacts about the victim, includingwhether the victim is a parent,sibling, or child. Also, theyshould inform the subjects ofany medical conditions andfully exploit this information.For example, a wife may state,“My husband has a heart condi-tion and needs his medicine. Iwould hate to see somethinghappen to him accidentallybecause he didn’t get his medi-cine. Then we both don’t getwhat we want.” Statements likethis clearly place the responsi-bility for the welfare of thevictim and the impending dealon the subjects, yet the familymember delivers the informa-tion in a nonconfrontationalmanner.

Develop Strategies

Negotiators also offerguidance and coaching inthe strategies and techniquesof lowering the subject’sexpectations and stalling for

Guide and Support FamilyThe grandson’s comments

in the opening example high-light the crisis negotiationteam’s skillfulness in preparingfamily members for anticipatedcontacts from the subject, whichoften include steep monetarydemands and intimidatingthreats of bodily harm or death.Negotiators provide guidanceand offer experience in dealingwith what can be frighteningand confrontational interactionswith kidnappers. Negotiatorsprepare family members for thefirst communication after law

One of thecrisis negotiation

team’s primaryresponsibilities in

any critical situationis to support the

overall investigativeeffort.

”“

July 2004 / 15

She recalled watching helplessly asher husband was abducted and led awayinto the thick forest. She stared in disbe-lief, heeding the kidnappers’ command toremain there for an hour. As she waited,she kept expecting her husband to appearfrom the bushes, walking toward her. Henever came.

Over the next several days and weeks,she went through a range of emotions.Initially, she was upset and scared. Somedays, she believed she was falling apart.She had bouts of crying, felt angry, andbecame argumentative. She attributed herability to pull herself together to FBInegotiators who worked with her—preparing her, coaching her, and role-playing with her—all in preparationfor conversations with her husband’skidnappers.

Negotiators helped her focus onsaving her husband’s life. She convincedherself that she had to be strong. Sheremains grateful to these negotiators,especially in light of the fact that herhusband is alive today, because theyoffered her guidance and advice andprepared her for taking part in the nego-tiation process.

A Kidnapping Perspective

time. With regard to loweringexpectations, crisis negotiationteam members try to makesubjects realize the inherentdifficulties in obtaining largeamounts of ransom money. Forexample, they inform subjectsthat banks often ask questionsregarding large withdrawals and

have to report large transac-tions. They also tell them thatfamily assets are not liquid, thusmaking cash not readily avail-able. Or, they say that thefamily simply does not havethe resources to cover thedemanded ransom. Such strate-gies set the tone for lowered

expectations, yet indicate awillingness to cooperate.

Negotiators coach and role-play with the family spokesper-son, or TPI, so the individualcan become more comfortablewith responding to potentialthreats and ransom demands.Proper preparation is crucial to

She had several conversations with herhusband’s kidnappers. Before the calls, thenegotiators role-played possible scenarios.They prepared her for the threats she re-ceived, and they focused her on achievingan established goal for each call, such asstalling for time and lowering expectations.She wrote notes to herself on what she wasgoing to say and practiced on her own.The negotiators provided immediate feed-back after each call; this gave herconfidence.

She described the kidnapping of herhusband as one of the most stressful andemotional situations she ever encountered.Sometimes, she unleashed her wide-rangingemotions of frustration, anger, and fear onthe negotiators; however, they did not seemto mind. She stated that she considered thenegotiators “friends” and sensed theircommitment to the priority: getting herhusband home alive.

In an interview shortly after herhusband’s return, she expressed gratitude tothe time the negotiators spent with her,acknowledging that they were away fromtheir own families while helping her. Shestated, “Negotiators enabled me to keep myhusband alive. They helped me do that.”

successfully communicatingwith subjects and getting themost out of every contact.These and other techniques aidin stalling for time. Timeenables investigators to employtechnical assets and to followup on leads and fully developthe investigation.

ConclusionCrisis negotiation teams can

make significant contributionsin kidnapping situations. Theunique skills they possess and

the critical role they play serveto strengthen the effectivenessof the overall investigativeinitiative and enable efficient,timely information flow withother key components. AsAlbert Einstein said, “In themiddle of difficulty lies oppor-tunity.” When such assistanceso clearly benefits on-scenecommanders, investigators, andvictim families, it simply makessense to seize the opportunityand call out the crisis negotia-tion team.

Endnotes1 For additional information, see Chuck

Regini, “Crisis Negotiation Teams:Selection and Training,” FBI LawEnforcement Bulletin, November 2002,1-5.

2 For additional information, seeStephen J. Romano, “Third-PartyIntermediaries and Crisis Negotiation,”FBI Law Enforcement Bulletin, October1998, 20-24.

3 For additional information, seeStephen J. Romano, “CommunicationSurvival Skills for Managers,” FBI LawEnforcement Bulletin, September 2002,14-16.

Subscribe Now


July 2004 / 17

Terrorism: An Investigator’s Hand-book, William E. Dyson, Anderson PublishingCompany, Cincinnati, Ohio, 2001.

While the September 11, 2001, attacks onthe World Trade Center and the Pentagon havemade terrorism one of the hottest topics in lawenforcement, many officers have little or notraining in this field. Fortunately, WilliamDyson has written Terrorism: AnInvestigator’s Handbook as a guide for lawenforcement officers. Terrorists, the authorsays, “are driven by their political objectives,not by the profit motivation that drives mostcriminals.” The author defines several types ofterrorism, with motivations that range frompolitical to religious, ethnic to technological.All of them have an agenda for forcing changethrough violence. The author recommendsthat law enforcement officers learn as much aspossible about the beliefs of a terrorist groupbefore beginning an investigation.

Chapter four, “What Investigators Need toKnow About Terrorists,” poses questions thatinvestigators will need to consider during aterrorist investigation. Such questions canhelp officers explore the terrorist group’s phi-losophy.

• What is the political philosophy of theterrorist group to which the subjectbelongs?

• What aspects of this philosophy does thesubject strongly support? What aspectsdoes the subject least support?

• Does the subject fully understand thegroup’s philosophy? Can the subjectverbally defend it?

• Is the group’s philosophy rational?Other questions deal with the terrorist

group’s rules and structure and the individual

Book Review

member’s commitment to the group, relationswith family members, and outside support.

Most of the book deals with specific inves-tigative techniques for terrorist investigations,such as interviewing, surveillance, and trashand mail covers, to name a few. It examineseach technique in detail and compares it withthe way in which the same techniques are usedfor other criminal investigations. The bookalso discusses common pitfalls and real-lifeexamples of what officers should not do. Forinstance, interviewing subjects for a terrorisminvestigation will require additional planningand foresight. If the investigating officers donot want the subject to know of the investiga-tion, they should consider whether it is a goodidea to interview the subject’s family andfriends who may be in sympathy with the sub-ject. If terrorists learn of the investigation, theymay abort their plans or disappear completely,thereby bringing the entire investigation to ahalt.

William Dyson speaks from his experiencegained in over 30 years of working for the FBIas a specialist in political terrorism investiga-tions. Presently, he works for the State andLocal Anti-Terrorism Training (SLATT)project. SLATT “provides training to local lawenforcement officers to better equip them toaddress the terrorist problem and to preventviolent attacks.”

This book is written in easy-to-understandlanguage, with summaries given at the end ofeach chapter. It contains an index and appendi-ces of key terms and concepts, as well as aglossary of extremist terms.

Reviewed byCorrine Koepf, MLS, Resource SpecialistUniversity at Buffalo, Buffalo, New York


n a hot summer day in1998, a man walkedinto the U.S. CapitolO

and killed two U.S. CapitolPolice officers. The male,previously diagnosed as aparanoid schizophrenic, report-edly believed that he had beencloned at birth and had inventeda machine to reverse time. Healso believed that the CIA hadbeen spying on him via satel-lite.1 The assailant had numer-ous prior contacts with lawenforcement and had beencommitted to a mental healthfacility prior to the killings.2

Sadly, this does not repre-sent an isolated incident. Duringthe years 1992 through 2001, 11law enforcement officers in theUnited States were killed byassailants who were mentallyill.3 Add these homicides to the914 law enforcement officersassaulted by people with mentalillness in the year 2001 aloneand the magnitude of the prob-lem becomes clear.4 It is im-perative for law enforcementagencies to train their officersto interact effectively and, mostof all, safely with individ-ualswho have mental illness.

THE PURPOSE OF ACRISIS INTERVENTIONTEAM

Primarily, the purpose of acrisis intervention team (CIT)is to provide law enforcementofficers with the skills they needto safely de-escalate situationsinvolving people with mentalillness who are in crisis, notto turn officers into mentalhealth workers. The termmental illness refers collectivelyto all diagnosable mentalconditions characterized byalterations in thinking, mood, orbehavior (or some combination

The MontgomeryCounty CIT ModelInteracting with Peoplewith Mental IllnessBy RODNEY HILL, GUTHRIE QUILL, and KATHRYN ELLIS

July 2004 / 19

Officer Quill serves withthe Montgomery County,Maryland, Police Department.

Lieutenant Hill is the director ofthe Legal and Labor RelationsDivision of the MontgomeryCounty, Maryland, PoliceDepartment.

Officer Ellis serves withthe Montgomery County,Maryland, Police Departmentand is a CIT coordinator.

thereof) associated with distressor impaired functioning.Alzheimer’s disease exemplifiesa mental illness largely markedby alterations in thinking (espe-cially forgetting), whereas de-pression provides an exampleof an illness predominantlydistinguished by fluctuationsin mood, and attention deficithyperactivity disorder typifiesone mainly recognized bychanges in behavior (over-activity) or thinking (inabilityto concentrate). Alterations inthinking, mood, or behaviorcontribute to a host of prob-lems—patient distress andimpaired functioning or height-ened risk of death, pain, disabil-ity, or loss of freedom.5

Crisis behavior results whenindividuals experience a tempo-rary breakdown in copingskills, including perception

and decision-making andproblem-solving abilities.Healthy people often seek helpfrom others to compensate forthe temporary inability to cope.But, individuals with mentalillness may experience thecrisis more severely, be lesslikely to seek assistance fromothers, or not understand thatthey are in crisis.6 A variety ofsituations can trigger a crisisbehavior. Events ranging fromthe loss of a job, being lockedout of a house, or being thevictim of a crime illustrateincidents that can ignite crisisbehavior in someone who hasa mental illness.7 An officerresponding to a call for anoise disturbance may unknow-ingly walk into a situationinvolving a person with mentalillness who is experiencing acrisis.

THE MONTGOMERYCOUNTY CIT MODEL

In 1999, the MontgomeryCounty, Maryland, PoliceDepartment sought a way topeacefully resolve potentiallyviolent encounters with personswho are mentally ill by takinga proactive approach andestablishing the MontgomeryCounty Police Crisis Interven-tion Team (CIT). The goal wasto provide officers with theproper tools and skills to safelyand effectively de-escalatecritical incidents involvingpeople with mental illness whoare in crisis.

The Montgomery CountyCIT program, initially modeledafter the Memphis CIT pro-gram,8 quickly evolved intoan effective modern modelfor many East Coast lawenforcement agencies. The


program has three complemen-tary components that have madeit a success: the training compo-nent, the CIT officer compo-nent, and the CIT coordinatorcomponent. Agencies interestedin establishing a similar pro-gram may want to considerthese components, as well assome key legal issues.

The Training Component

The training componentconsists of three segments:basic, advanced, and less-than-lethal training and constitutesa collaborative effort involvingMontgomery County’s PoliceDepartment, Sheriff’s Office,Department of Health andHuman Services, Departmentof Corrections, and MentalHealth Association, along withthe local chapter of the NationalAlliance for the Mentally Ill anda nearby state hospital. All ofthe training takes into accountthe safety of the officers in-volved, as well as that of theindividuals in crisis. Officersunderstand the importance ofmaintaining control of thesituation to avoid the possibilityof it escalating further. Theyalso realize that any hesitationon their part to use force onindividuals who may causeharm to themselves or to otherscan result in serious, life-threatening consequences toeveryone at the scene, includingthe officers themselves.

Basic CIT TrainingBasic training comprises a

40-hour block of instructionwherein officers receive bothclassroom and hands-oninstruction. Professionals fromthe partnering mental healthorganizations teach variousblocks of instruction, whichcover the different types ofmental illness, interview tech-niques, de-escalation strategies,and other relevant topics. Theofficers participate in a live“hearing distressing voices”

understanding and empathizingwith those who have mentalillness. Afterwards, they visit anearby Maryland hospital forindividuals with mental illnesswhere they meet the hospitalstaff and engage in a groupdiscussion with patients whohave had both positive andnegative experiences with lawenforcement when they were incrisis. The group discussionsoffer them a great insight intounderstanding how a personexperiencing crisis behaviorreacts to a law enforcementpresence. The patients speakopenly about their interactionswith officers and often relatewhat triggered them to eitherfight or cooperate.

The basic training concludeswith a full day of scenarios forthe students. The role playersare mental health professionalsfrom the Montgomery CountyDepartment of Health andHuman Services. The scenariosare videotaped, and each stu-dent receives a critique at theend of the session.

Advanced CIT Training

The advanced CIT trainingcomponent provides CIT mem-bers with continuous informa-tion and knowledge to enhancetheir skills. The training in-volves a collaborative effortwith a number of outside orga-nizations that offer lectures andseminars on topics that relate to

exercise. This role-playingscenario provides them witha glimpse of what it is like tohear voices in their heads.Each officer wears a set ofheadphones and listens to thedistressing voices for 1 hourwhile performing various tasks,such as walking to the store,changing a tire, or being inter-viewed. This exercise consti-tutes a major turning point inthe training and an epiphanyfor many of the officers in

Crisis behavior resultswhen individuals

experience atemporary breakdown

in coping skills....

”“

July 2004 / 21

mental illness. The U.S. SecretService’s Protective IntelligenceUnit invites CIT officers toattend its training seminars onassessing danger. The FBI’sCrisis Negotiation Unit spon-sors seminars on negotiationtechniques and interviewingsuicidal subjects for CIT mem-bers. A Maryland correctionalfacility (which serves as amental hospital for offenderswho have committed seriouscrimes, but, because of theirmental illness, were found “notcriminally responsible”) pro-vides a forum for group discus-sion between CIT officers andinmates.

Less-Than-Lethal TrainingThe less-than-lethal portion

of the CIT program involves apatrol tactical plan for dealingwith individuals in crisis. Theplan, known as the ImmediateAction Team, incorporates thedepartment’s less-than-lethalweapons into a standardizedprotocol for the coordinated de-ployment of the weapons. Thedepartment’s less-than-lethalarsenal consists of Tasers (i.e.,electromuscular disruptionweapons), beanbag shotguns,pepper-ball guns and spray,expandable batons, and ballisticshields. Only CIT members areissued Tasers, while specificindividual officers carry bean-bag shotguns. Each of thesix district stations has twoballistic shields, and all other

execute tactical entries repeat-edly. Consistency of trainingand trust allows officers toperform their individual rolesand rely on their teammates todo the same, thus achieving asynergistic effect.

The basic deployment of theless-than-lethal plan is based ona triangle, using three officers.The plan, however, is flexibleenough for two to initiate. Theprimary “contact” CIT officer9

assumes a position to engagethe individual and is responsiblefor all commands, communica-tion with the person, and thedeployment of less-than-lethalforce. The assisting cover offi-cers stand a few feet to the rearon both sides of the contactofficer, forming a triangle. Atthe contact officer’s direction,they are responsible for goinghands on and effecting an arrest,including deploying deadlyforce if necessary. This roledelineation provides a clearunderstanding of who doeswhat, avoids confusion duringthe heat of the moment, andstreamlines the command andcontrol process, thereby replac-ing the discretion of multipleofficers with the discretion ofone officer who manages theencounter.

The CIT Officer ComponentUpon completion of the 40-

hour block of instruction, CITmembers receive a badge-shaped insignia to wear above

communicate, and employ atactical plan. Having flexiblepreplanned basic tactics helpsto promote efficient and con-trolled operations. Officerswho lose control of a tacticalsituation may feel that theymust overreact to regain control.This introduces dangerous andunpredictable elements into analready serious situation.

Standardization explainswhy all patrol officers practicehigh-risk felony vehicle stopsthe same way, why all plain-clothes officers rehearse vehicletakedowns in the same manner,and why SWAT members

less-than-lethal weapons arestandard issue.

The standardization oftactics affords officers theopportunity to prepare for alikely scenario, practice a tacticto proficiency, and develop thecritical aspect of coordination.In a dynamic and stressfulsituation, they often do not havetime to attempt to design,

© stockbyte


their name tag. Agencies thatparticipate in the CIT programadvise consumers10 who comeinto contact with them thatofficers wearing the insigniahave received special trainingin various de-escalation andinterview techniques and knowof various health services thatcan help consumers in crisis.CIT members, appropriatelyidentified in the CAD (com-puter-aided dispatch), aredispatched as the primaryofficer on all calls involvingpeople suspected of having amental illness. These rangefrom attempted suicides todisturbance calls. Once on thescene of a critical incident, theCIT officer will determine thefollowing:

• Does the person appear tohave a mental illness?

• Does the person need anemergency evaluation? Atthis point, the officer alsoassesses the dangerousnessof the situation and mayapply the appropriate de-escalation techniques.

• Should the person be crimi-nally charged or diverted toa mental health agency?This applies only in minormisdemeanor cases.

• Does the person requireimmediate medical ormental health attention? Ifnot, where can the indi-vidual seek the appropriatehelp? In some cases, the

families need referrals to anagency or organization forhelp.The Montgomery County

Department of Health andHuman Services has establisheda Mobile Crisis Team com-prised of mental health profes-sionals who operate from 8 a.m.to midnight, 7 days a week. Ifa CIT officer responds to thescene of a person in obviouscrisis but the person does not

Response Team (many areCIT trained) respond and takecontrol of the scene. However,CIT officers resolve a majorityof the calls by using theirinterview and de-escalationskills. By far, the greatest toolthat the CIT officer brings tothe scene is empathy for theperson in crisis.

The CIT CoordinatorComponent

From the inception of theprogram, an officer has servedfull time as the department’sCIT coordinator to establishand develop relationships withthe partner agencies; organizethe basic CIT training courseon a bimonthly basis, thetraining courses for the less-than-lethal weaponry, and theadvanced training seminars;attend quarterly meetings withthe police chief; meet monthlywith the district CIT coordina-tors; and participate in variousmeetings within the mentalhealth community. The coordi-nator also tracks all incidentsinvolving CIT officers andcollects data on CIT incidents.For statistical purposes, allCIT members must completea 1-page report whenever theyhandle an incident.

In addition to the CITcoordinator, each of the sixpolice district stations has anofficer assigned as a districtCIT coordinator, a voluntaryposition performed along with

exhibit the behavior the officerneeds to draft an emergencyevaluation petition, the MobileCrisis Team responds to assist.Because mental health profes-sionals make up the team, theyhave a greater ability to draft anemergency evaluation petition.

If a CIT officer is on thescene of a critical incident thatrequires the use of less-than-lethal force, the officer deter-mines when and what force toemploy. If the incident evolvesinto a barricade situation, thenegotiators from the Emergency

By far, the greatesttool that the CIT

officer brings to thescene is empathy

for the personin crisis.

”“

July 2004 / 23

regular patrol responsibilities.The district coordinators assistthe department coordinator byrecruiting officers to becomeCIT certified; tracking thevarious incidents involvingCIT members; briefing otherofficers on critical incidents atroll calls; assisting CIT mem-bers with their cases; helpingwith the basic, advanced, andless-than-lethal training courses;participating in monthly meet-ings with the department CITcoordinator; attending quarterlybriefing sessions with the chiefof police; and filling in for thedepartment coordinator whennecessary.

LEGAL CONSIDERATIONSFor many law enforcement

agencies, policy change oftencomes only on the heels of alawsuit or an embarrassingmajor incident.11 However, in-stead of waiting for that fatalpolice shooting or the federalinvestigation for excessiveforce, law enforcement leadersshould go on the offensive, beproactive, and implement policythat will help mitigate aplaintiff’s civil claim.

Prior to committing acts ofviolence, many subjects writeletters, make telephone calls,and use other methods to com-municate with those in lawenforcement.12 Officers mustlearn to recognize that this typeof behavior may indicate aperson in crisis who requires

immediate intervention. Theymust remember that mentalillness is a disease, one thataffects 1 out of 5 Americans.13

Identification of these behaviorsand early intervention may helpavoid a violent encounter.Training law enforcementofficers in de-escalation tech-niques that involve both verbalskills and less-than-lethal tacticsmay represent the single factorfor prevailing in a wrongfuldeath or excessive force civillawsuit.14

high that the U.S. SupremeCourt requires a plaintiff toprove that the defendant showed“deliberate indifference.”

In Monell v. New York CityDepartment of Social Services,16

the Supreme Court stated, “Acity is not liable under a section1983 claim unless a municipal‘policy’ or ‘custom’ is themoving force behind the consti-tutional violation. Only where afailure to train reflects a ‘delib-erate’ or ‘conscious’ choice bythe municipality can the failurebe properly thought of as anactionable city policy.”

The Supreme Court revis-ited the issue in City of Cantonv. Harris.17 Here, the court heldthat liability could be attachedagainst a municipality where themunicipality’s failure to trainreflects a deliberate indifferenceto the constitutional rights of itscitizens. The court further statedthat where the need for addi-tional training is “so obvious”and the failure to provide theadditional training is “so likely”to result in a constitutionalviolation, deliberate indiffer-ence may be able to be shown.18

The challenge for lawenforcement leaders is makingsure that their departments arenot vulnerable to claims ofdeliberate indifference, espe-cially when dealing with indi-viduals who are mentally ill.Courts may find that the merefact that a department failed totrain its officers to recognize

Two of the most commoncivil suits brought against lawenforcement leaders are failureto properly supervise and failureto provide adequate training.15

Generally filed in federal court,these suits charge that a depart-ment’s failure to properly super-vise and train led to a violationof a person’s civil rights underTitle 42, Section 1983, U.S.Code (commonly referred to as“section 1983”). The standardof proof for such a claim is so

© Mark C. Ide


and handle people with mentalillness is cause enough to showdeliberate indifference. In Olsenv. Layton Hills Mall,19 the U.S.Court of Appeals for the TenthCircuit held that a municipalitycould be sued for failing to trainits officers to recognize signsof the psychological disorder,obsessive-compulsive disorder.

The facts in the Olsen caseare a common occurrence. Theplaintiff, who had obsessive-compulsive disorder, com-plained to the arresting officerand jailers that he was havinga panic attack. The officersignored his complaints anddenied him his medication. Theplaintiff filed a claim chargingthat the officers violated hisEighth Amendment rightsbecause they failed to recognizehis medical needs.20 The appel-late court reversed the lowercourt’s granting of summaryjudgment to the defendant andruled that a finding of deliberateindifference in violation of theEighth Amendment has twoprongs: an objective prong anda subjective prong. The objec-tive prong is met if the medicalneed is “sufficiently serious”;the subjective prong requiresthat the defendant knows of anddisregards an excessive risk tothe plaintiff’s health or safety.

Objectively, the court ruledthat obsessive-compulsive dis-order may be both grave enoughand prevalent enough to qualifyas sufficiently serious. Subjec-tively, the court held that the

jury must resolve the issue ofwhether the defendant knew ofthe plaintiff’s condition and,thus, could infer that a substan-tial risk of serious harm ex-isted.21 The court held thatalthough the plaintiff had notsuccessfully linked the officer’spossible constitutional violationto a custom or policy of the

training. In the case Atchinsonv. The District of Columbia,24

the U.S. Court of Appealsfor the D.C. Circuit held thata single incident of the useof deadly force was adequateto support a complaint ofinadequate training andsupervision.25

Numerous advocacy groupsthroughout the nation demandthat their local law enforcementagencies follow the lead andtrain officers in specializedmethods of dealing with indi-viduals who are mentally ill.What once was considered anarea of special training maysoon become a common prac-tice, thereby raising the legalstandard to which agencies areheld. Law enforcement leadersnot offering similar trainingmay find themselves at a disad-vantage. Those who do offer itwill find that the cost to traintheir personnel to deal withpeople who have mental illnessproves less expensive than acivil action.26

CONCLUSIONSadly, statistics show that

people with mental illnesssometimes become violent andharm others, even law enforce-ment officers trying to helpthem. Therefore, law enforce-ment agencies must find waysto safeguard their officers while,at the same time, protectingsuch individuals from them-selves and the disorders that cancause them to suffer greatly.

city that employed him,22 theplaintiff alleged facts that couldestablish that the county mani-fested deliberate indifference byfailing to train its jailers to re-cognize individuals with obses-sive-compulsive disorder and tohandle them appropriately.23

Unlike suits alleging harass-ing or discriminatory practices,a person alleging failure toproperly supervise or provideadequate training does nothave to show past practicesor a course of conduct to raisethe claim. Courts in somejurisdictions have held that asingle incident can be enoughto raise the claim of impropersupervision and inadequate

They mustremember that

mental illness is adisease, one thataffects 1 out of 5

Americans.

”“

July 2004 / 25

The Montgomery County,Maryland, Police Departmentestablished a program to help itpeacefully resolve potentiallyviolent encounters with peoplewho are mentally ill. Bypartnering with local and statecriminal justice and mentalhealth organizations, its CrisisIntervention Team providesofficers the tools and techniquesto safely and effectively de-escalate critical incidentsinvolving people with mentalillness.

Endnotes1 M. Grunwald and S.G. Boodman,

“Weston Case Fell Through Cracks:Violence by Mental Patients Hard toPredict, Experts Say,” The WashingtonPost, July 28, 1998, sec. A, p.1.

2 K. Mohandie and J. Duffy, “Under-standing Subjects with Paranoid Schizo-phrenia,” FBI Law Enforcement Bulletin,December 1999, 8-16.

3 U.S. Department of Justice, FederalBureau of Investigation, Law EnforcementOfficers Killed and Assaulted, 2001(Washington, DC, 2002), 33.

4 Ibid., 93.5 U.S. Department of Health and

Human Services, Mental Health: A Reportof the Surgeon General (Rockville, MD,1999); retrieved on October 9, 2003, fromhttp://www.surgeongeneral.gov/library/mentalhealth/home.html.

6 Police Executive Research Forum,The Police Response to People withMental Illness, Module II-21, 1997.

7 Ibid.8 The Memphis, Tennessee, Police

Department’s model couples intense crisisintervention training for officers with apartnership between law enforcementagencies, mental health providers andadvocates, and individuals with mentalillness. For an example of another

agency’s program, see Michael Klein,“Law Enforcement’s Response to Peoplewith Mental Illness,” FBI Law Enforce-ment Bulletin, February 2002, 11-14.

9 The contact officer does not necessar-ily have to be a CIT officer.

10 The National Alliance of theMentally Ill has advanced the termconsumers as the proper one to use whenidentifying a person with mental illness.

11 Susan Rogers, “Police, Consumersand Families Join Forces to Improve CrisisResponse,” The Key (Fall 2000).

12 Supra note 2, 11.13 Supra note 5.14 Although most states and the federal

government provide qualified immunityfrom lawsuits for law enforcement officersif their actions were within the scope oftheir duties and without malicious intent,situations can occur where immunitywill be denied. For example, officerswho unknowingly violate a clear constitu-tional standard will be denied qualifiedimmunity even if they acted withoutmalice and in the belief that their actionswere legal.

15 R. Hill and J. Logan, “Civil Liabilityand Mental Illness: A Proactive Model toMitigate Claims,” The Police Chief, June2001, 31.

16 436 U.S. 658, 694 (1978).17 489 U.S. 378 (1989).18 Supra note 15, 30.19 10th Cir., No. 01-4130 (12/11/02).20 The Eighth Amendment states, in

part, “nor cruel and unusual punishmentinflicted.”

21 “Lack of Training on MentalDisorder May Lead to Liability,” The LawOfficers’ Bulletin, January 16, 2003, 16.

22 Monell v. New York City Departmentof Social Services, 436 U.S. 658 (1978).

23 Supra note 21.24 73 F.3d 418 (D.C. Cir. 1996).25 Supra note 15, 31.26 Supra note 15, 31.

For questions about the MontgomeryCounty CIT program, call the CITcoordinator at 240-773-5057.

Wanted:Notable Speeches

he FBI Law EnforcementBulletin seeks transcriptsT

of presentations made by crim-inal justice professionals forits Notable Speech depart-ment. Anyone who hasdelivered a speech recentlyand would like to share theinformation with a wideraudience may submit a trans-cript of the presentation to theBulletin for consideration.

As with article submis-sions, the Bulletin staff willedit the speech for length andclarity, but, realizing that theinformation was presentedorally, maintain as much ofthe original flavor as possible.Presenters should submit theirtranscripts typed and double-spaced on 8 ½- by 11-inchwhite paper with all pagesnumbered. When possible, anelectronic version of the tran-script saved on computer diskshould accompany the docu-ment. Send the material to:

Editor, FBI LawEnforcement BulletinFBI AcademyMadison Building,Room 201Quantico, VA 22135telephone: 703-632-1952,e-mail: [email protected]

Bulletin Reports

The Bureau of Justice Statistics (BJS) presents Recidivism ofSex Offenders Released from Prison in 1994, which features dataon the rearrest, reconviction, and reimprisonment of 9,691 malesex offenders, including 4,295 child molesters, who were trackedfor 3 years after their release from prisons in 15 states in 1994.The 9,691 individuals comprise two-thirds of all male sex of-fenders released from prisons in the United States in 1994. Thestudy represents the largest follow-up ever conducted of con-victed sex offenders after discharge from prison and provides themost comprehensive assessment of their behavior after release.Highlights include the following: within 3 years following theirrelease, 5.3 percent of sex offenders (men who had committedrape or sexual assault) were rearrested for another sex crime;on average, the 9,691 sex offenders served 3 1/2 years of their8-year sentence; and, compared to non-sex offenders released from state prisons,released sex offenders were 4 times morelikely to be rearrested for a sex crime. Thisreport is available electronically at http://www.ojp.usdoj.gov/bjs/abstract/rsorp94.htm.

Sex Offenses

The National Institute of Justice (NIJ)presents Hand-Held Metal Detectors for Usein Concealed Weapon and Contraband De-tection, which establishes performance re-quirements and testing methods for activehand-held metal detectors used to find metalweapons or metal contraband carried on aperson or concealed by a nonmetal object. Itcontains definitions to help readers use andunderstand the specifications and providesfield testing procedures for and mechanicaldrawings of several potentially dangeroustest objects. This guide is available electroni-cally at http://www.ncjrs.org/pdffiles1/nij/200330.pdf.

Equipment


July 2004 / 27

Formed in 1998, the Na-tional Alliance of Gang In-vestigators Association(NAGIA) is a unique allianceof criminal justice professionals dedicated to promoting andcoordinating national antigang strategies. It consists of rep-resentatives from 14 regional gang investigators’ associa-tions, representing more than 15,000 gang investigatorsacross the country, as well as advisory representation fromfederal agencies and other organizations involved in gang-related prevention and suppression initiatives. Its Web site,http://www.nagia.org, contains links to NAGIA memberassociations, threat assessment information, gang-relatedarticles and information, and conference information.

Web-BasedResources

The National Institute of Justice (NIJ) presents the Na-tional Institute of Justice 2002 Annual Report, which high-lights NIJ’s research and development activities duringfiscal year 2002 in such areas as terrorism, violence againstwomen and family violence, science and technology, andcommunity safety. The report details NIJ’s increased com-mitment to program evaluation and describes how new-look print, electronic products, and electronic-based dis-semination will make policy-relevant research more readilyavailable to policymakers and practitioners. Further, it alsocontains financial and Web data and lists of awards, confer-ences, and products. This report is available electronicallyat http://www.ncjrs.org/pdffiles1/nij/200338.pdf or by con-tacting the National Criminal Justice Reference Service at800-851-3420.

Reference

Bulletin Reports is an edited collection of criminal justice studies, reports, andproject findings. Send your material for consideration to: FBI Law EnforcementBulletin, Room 209, Madison Building, FBI Academy, Quantico, VA 22135. (NOTE:The material in this section is intended to be strictly an information source andshould not be considered an endorsement by the FBI for any product or service.)

aw enforcement agen-cies all strive to prop-erly handle evidence

A small-town sheriff’s officesuspends an officer after findingcash, drugs, and guns missingfrom its evidence room...anurban agency mishandlesevidence, putting eight high-profile homicide cases injeopardy...a department un-knowingly stores hazardousmaterials for several years….

Lin their custody. Departmentsrecognize the trouble that canarise when property roomsmishandle such items—publicembarrassment, financialliability, possible criminalcharges, and the inadmissibilityof important evidence serve asexamples. Also, officers canlose trust in the evidence room,which can lead to investigatorsstoring evidence elsewhere,such as in the trunks of their

vehicles. This practice, ofcourse, also presents problems.

Certainly, any agencyrecognizes the property room’sfunction and the importantrole it plays in support of thedepartment’s mission.1 How-ever, law enforcement person-nel should go beyond simplyexchanging pleasantries withthe property room staff andconsider a thorough examina-tion of the evidence room,evaluating issues, such aslocation, security, storage,disposal, and staffing.2 Such


The Property RoomImportant ConsiderationsBy BARNEY KINMAN

July 2004 / 29

“

”

All departmentsrecognize the

importance of properlyhandling evidence in

their custody....

Lieutenant Kinman retired from with the Lexington-Fayette UrbanCounty Division of Police and currently serves with the Kentucky

Department of Criminal Justice Training.

“an analysis can ensure that theproperty room serves as theimportant asset that departmentsdesire it to be.

Location and SecurityAgencies carefully should

consider where they locate theirevidence rooms. Many choosethe basement of their facility—not necessarily a wrong choice,but one that organizationsshould make only after thor-oughly analyzing the potentialproblems this option canpresent. For example, much ofthe mechanical equipment typi-cally located in basements—gas, plumbing, sewage, andsprinkler systems serve asexamples—at some point maydamage property contained inthe evidence room. Also, whenmechanical components arelocated in the property roomitself, they can take up valuablestorage space and also will needregular inspection and mainte-nance, requiring access by avariety of individuals.

Whatever location anagency chooses, the evidenceroom must be secure. Organiza-tions should consider whatoffices border the propertyroom. Potentially, only drywallmay separate the department’sevidence room from unautho-rized personnel (perhaps fromoutside the department). Analarm system with codes knownonly to the property room staffproves essential. Agencies alsoshould install motion detectors

in the areas where they storeguns, drugs, and money.

Employees must followstrict procedures when grantingaccess to the facility. Autho-rized personnel should escorteveryone, including swornofficers from the department,who requires access to therestricted area of the propertyroom. One way agencies canlimit such visitors is to usethe evidence room only for itsintended purpose and not tocombine it with other uses (suchas quartermaster storage). Staffshould maintain a log book thatdocuments all visitors and theirreasons for access.

Evidence room visitorsoften include defense attorneys.Agencies should designate aseparate area, away from thefront counter, for use by law-yers who need to examine evi-dence in preparation for trial.Preferably, a prosecutor, rather

than evidence room staff, willcarry the burden of accompany-ing the individual.

When visited by citizens,department staff always shouldescort them to and from theproperty room; they nevershould be unaccompanied whilein the department. Frequently,such individuals will come toretrieve firearms seized fromthem. Before issuing theweapon, property room staffshould perform a criminalhistory check to verify theperson’s legal entitlement to thefirearm. Further, personnel onlyshould release the ammunitionafter the citizen secures thefirearm outside the building.

Storage and Disposal

When storing evidence,ideally, agencies should assigna bar code to items and trackthem by computer in addition tomanual written records. Such


records should describe theitems in detail. For instance,one agency reported an incidentwhere an attorney discoveredthat two employees miscountedthe number of pills serving asevidence in an investigation.Fortunately, the booking officerfollowed agency regulations andnot only recorded the numberof pills but also their weight; theaccurate weight of the pillsprevented potential damage tothe case.

Agencies have many otherconsiderations when storingevidence. For example, theCommission on Accreditationfor Law Enforcement Agencies(CALEA) requires accrediteddepartments to adhere to spe-cific guidelines, such as seclud-ing computer hard drives toprevent damage by magnetscontained in such items asstereo speakers and separatingweapons, drugs, and money3

(if possible, agencies shoulddeposit evidence money into abank account; money out of theproperty room is one lesspotential liability).

Some items should beprohibited from the propertyroom. For example, agenciesshould not store perishablefood items unless absolutelyessential to a criminal case,such as poisoned food pertain-ing to a homicide investigation(of course, departments mustensure that they use an evi-dence-only refrigerator in the

secure area for such situations).Evidence room personnel alsonever should accept unopenedcontainers (a safe seized duringa narcotics investigation servesas a common example) unlessthey can open it or somehowotherwise verify its contents.One agency disposed of a safethey had stored for several yearsthrough many administrationsand personnel changes beforefinding that it contained a largeamount of dynamite. Subse-quently, the department decidedto check every similar item inits possession.

police department. These turnedout to be the new directoriesintended for the organization’suse.

Most agencies probablywould agree that a propertyroom never can offer too muchstorage capability. A clutteredevidence room makes it difficultfor agencies to adhere to localfire codes or store items effi-ciently. One way departmentscan maximize available space isto use movable modular shelv-ing. This system allows organi-zations to use the majority oftheir floor space by eliminatingthe need for numerous aisles.Although expensive, agenciesprobably will find them wellworth the cost when consideringthe expense of a new facility.

Also important when con-sidering space availability,departments should stick to aregular disposal schedule.4

Agencies must dispose of foundproperty regularly, according toappropriate regulations. Investi-gators should notify propertyroom staff when evidence in aparticular case can be disposed,and staff should prompt investi-gators by sending them propertydisposal forms regularly. Evi-dence in misdemeanor caseswhere no arrest warrant wasissued should be disposed ofupon expiration of the statute oflimitations. Evidence room staffalways must obtain properauthority from the investigatoror appropriate supervisor before

”Certainly, any agencyrecognizes the pro-

perty room’s functionand the important role

it plays….

“In this regard, property

room personnel should havethe right of refusal over everyitem submitted to them. As ahumorous example, one officerdescribed a situation in whichhe would not accept a shrink-wrapped bundle of telephonebooks that another well-inten-tioned investigator attemptedto book as found property afterdiscovering it at the front of the

July 2004 / 31

disposing of any item booked asevidence.

Agencies must observeappropriate laws governingevidence disposal and whatactions can betaken with suchitems. For example,departments maywish to donatecertain items tocharitable organiza-tions but find thatthey must returnthem to their lawfulowners, destroythem, or sell themat auction. Agen-cies must remainaware of appropri-ate laws governingthe disposal ofpotential DNAevidence (and possible criminalpenalties for violations). In thisregard, some very large items,such as vehicles or furniture,can present storage problemsfor departments facing delaysin obtaining the authorityneeded to dispose of them.

Evidence rooms shouldhave the necessary equipmentfor proper evidence disposal.Examples include a workbenchand a sink, such as a laundrysink, for liquid items. Depart-ments should obtain access to afederally approved incineratorfor such items as narcotics.Proper equipment can helpagencies ensure that they dis-pose of items properly and in

affairs unit, a local prosecutor,or a representative of a neigh-boring law enforcement agencydocument (in writing and withphotographs) and verify properdisposal.

Staffing IssuesLaw enforcement agencies

should staff their propertyrooms according to their indi-vidual needs. Of course, staffinglevels will vary between depart-ments—larger departments thathave an evidence room open atall times during normal businesshours may staff three or moreemployees.

If possible, agencies shoulddesignate one employee for

each property room function.For example, property roomsresponsible for transportingitems to and from the crimelab should have one personassigned to that duty. This

person may need tospend time in courton a regular basisbecause of chain-of-custody. Logically,spreading thisassignment outamong more thanone person in theunit presents the riskof having the entirestaff in court regu-larly. In cases wherethe designatedperson is not avail-able for this assign-ment, agencies

should consider using someoneoutside of the property unit toavoid closure due to lack ofstaffing. Agencies also shouldassign one employee to handleall disposals—for many depart-ments, this alone can be a full-time job.

All evidence room person-nel should receive cross trainingto handle every function of theproperty room. This helps limitthe need for temporarily as-signed employees. Departmentscertainly should avoid thetemptation to temporarily stafftheir evidence rooms with offi-cers facing pending disciplinaryissues. For instance, legal issuescan arise if such officers have

Some Considerations for theProperty Room

• Is it situated in the best available location?

• Does it offer plenty of storage space?

• Are disposals handled appropriately?

• Is it organized effectively?

• Does it have the right staffing level?

• Is it secure?

accordance with environmentalregulations.

Whenever evidence isdestroyed, particularly drugs ormoney, organizations shouldhave a member of the internal

access to evidence in a pendingtrial. Agencies must realizethat interim employees maycause more problems than theysolve.

ConclusionLaw enforcement agencies

can benefit from examiningtheir property rooms and ensur-ing that they serve the organiza-tion as effectively as possible.Factors, such as location,security, staffing, storage, and

disposal, all prove important inthis evaluation.

All departments recognizethe importance of properly han-dling evidence in their custody—not doing so can be problem-atic. An efficient evidence roomserves an important role in su-pport of an agency’s mission.

Endnotes1 Agencies should develop and

adhere to a detailed written policyconcerning property room staffing andprocedures.

2 The author presents these recommen-dations based on his professional experi-ence in property room management andsuggests a formal seminar on the subjectfor more thorough training.

3 For additional information, seeCALEA Online, http://www.calea.org.

4 Agencies must ensure that proceduresgoverning the disposal of firearms andother relevant items reflect the appropriateuse of the National Crime InformationCenter (NCIC) database. For additionalinformation, see Stephanie L. Hitt, “NCIC2000,” FBI Law Enforcement Bulletin,July 2000, 12-15.

Crucifix Knife

This object appears to be acrucifix, but it actually is anonmagnetic cross that containsa sharp metal blade. Offendersmay attempt to disguise thisweapon as a key chain ornecklace.

Unusual Weapon


The Bulletin Notes

Law enforcement officers are challenged daily in the performance of their duties; they face eachchallenge freely and unselfishly while answering the call to duty. In certain instances, their actionswarrant special attention from their respective departments. The Bulletin also wants to recognizethose situations that transcend the normal rigors of the law enforcement profession.

Officer Markus Officer Martinez

On a wintry day, Officers JohnMarkus and Chris Martinez of theProsser, Washington, Police Depart-ment responded to a report of an auto-mobile that had entered a river. Uponarrival at the scene, the officers deter-mined that because of the snowy andicy conditions the vehicle had skiddedoff the road, dropped down a 15-footembankment, and landed upside downin the water, becoming mostly sub-merged. Without regard for their ownsafety, both officers removed theirequipment belts and ballistic vests,braved the snow-covered embankment,and dove into the icy, muddy waters.After prying the jammed doors open,Officers Markus and Martinez enduredthe frigid conditions and repeatedly en-tered the vehicle, removing the victims,which included a mother and her 5-year-old and twin 10-month-old daugh-ters. Unfortunately, the frantic effortsof medical personnel could not save thevictims. However, the heroic actions ofOfficers Markus and Martinez reflectedthe true reverence they hold for thelives of the citizens they serve.

Officer Schultz Officer Krause

Officers Robert Schultz and MarkKrause of the Harvard, Illinois, PoliceDepartment responded to a fire at amultifamily residence. Upon arrival,they observed thick smoke and flamescoming from the first floor. Knowingthat people may be upstairs, OfficerSchultz kicked in the front door, butcould not enter because of the fire anddensity of the smoke. He managed toget to the second floor by using a stair-case behind the building. Although henoticed that the fire was comingthrough the floor from the first level,Officer Schultz disregarded his ownsafety and entered. He assisted awoman with two infants, a man with asmall child, and one other person outof the residence. Officer Schultz thencontinued through the thick smoke,checking every room. Officer Krausealso bravely entered the building bykicking in a different first floor doorand ensured that everyone was out.The brave actions of these two officersundoubtedly helped save the lives ofthe residents.

PeriodicalsPostage and Fees PaidFederal Bureau of InvestigationISSN 0014-5688

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Official Business

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The patch of the Old Saybrook, Connecticut,Department of Police Services depicts the outerlighthouse, located on the breakwater where theConnecticut River meets Long Island Sound.Originally settled in 1622 as Kievet’s Hock, OldSaybrook is the oldest settlement in the state ofConnecticut.

The patch of the Ankeny, Iowa, Police Depart-ment features the flags of the United States and thestate of Iowa, denoting the department’s dedica-tion to its nation and to the citizens it serves. TheAmerican eagle represents bravery, strength, andintegrity and the maroon laurels honor officersfallen in the line of duty.

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