EOG_Vol_5.pdf

Los Angeles Police Department Emergency Operations Guide Volume 5 Guidelines for Crowd Management and Crowd Control Published By: Emergency Preparedness Unit Emergency Operations Division Special Operations Bureau Los Angeles Police Department 550 E. Temple St. Los Angeles, CA 90012 (213) 484-6750 2009 Copyright © 2009 by the Los Angeles Police Department. All rights reserved. No part of this book may be copied or reproduced in any form or by any means without written permission of the Los Angeles Police Department. A Message from Chief of Police William J. Bratton To: All Department Employees WILLIAM J. BRATTON Chief of Police Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide i TABLE OF CONTENTS CHAPTER 1 – DEPARTMENT MISSION ............................................................................... 1 CHAPTER 2 – PUBLIC ASSEMBLIES .................................................................................... 2 GENERAL ..................................................................................................................................... 2 CROWD MANAGEMENT ................................................................................................................ 2 CROWD CONTROL ........................................................................................................................ 3 USE OF FORCE .............................................................................................................................. 3 CHAPTER 3 –MISSION AND OBJECTIVES .......................................................................... 4 INCIDENT COMMAND SYSTEM AND NATIONAL INCIDENT MANAGEMENT SYSTEM ..………….. 4 CROWD MANAGEMENT MISSION AND OBJECTIVES ..................................................................... 4 CROWD CONTROL MISSION AND OBJECTIVES ............................................................................. 5 CHAPTER 4 – GENERAL GUIDELINES ................................................................................ 6 POLICE OFFICER........................................................................................................................... 6 SQUAD LEADER ………………………………………………………………………………….8 PLATOON LEADER ………………………………………………………………………………11 INCIDENT COMMANDER … ........................................................................................................ 14 CHAPTER 5 – CROWD MANAGEMENT STRATEGIES AND TACTICS…………………17 GENERAL PRINCIPLES OF CROWD MANAGEMENT .................................................................... ..17 INCIDENT MANAGEMENT TEAM PROCEDURES ........................................................................…....19 CHAPTER 6 – UNLAWFUL ASSEMBLY DEFINITION/COURT MANDATED POLICY FOR POLICING UNLAWFUL ASSEMBLIES………………………………………………..23 CHAPTER 7 – CROWD CONTROL STRATEGIES AND TACTICS ................................ 28 GENERAL PRINCIPLES OF CROWD CONTROL……………………………………………………..28 COMMAND PROTOCOLS………………………………………………………………………….29 MOBILE FIELD FORCE CONCEPT ............................................................................................... .37 MOBILE FIELD FORCE CONFIGURATION..................................................................................... 37 MOBILE FIELD FORCE TACTICS ................................................................................................. 38 LESS LETHAL MUNITIONS .......................................................................................................... 38 CHEMICAL AGENTS.................................................................................................................... 39 DISPERSAL ORDERS. .................................................................................................................. 40 USE OF BATON IN CROWD CONTROL ......................................................................................... 41 INDEX .......................................................................................................................................... 42 Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide ii HOME CHAPTER 1 - Department Mission The Mission Statement of the Los Angeles Police Department is as follows: Our mission is to work in partnership with all the diverse residential and business communities of the City, wherever people live, work, or visit, to enhance public safety and to reduce the fear and incidence of crime. By working jointly with the people of Los Angeles, the members of the Los Angeles Police Department and other public agencies, we act as leaders to protect and serve our community. To accomplish these goals, our commitment is to serve everyone in Los Angeles with respect and dignity. Our mandate is to do so with honor and integrity. Mission Statement of Crowd Control and Crowd Management The Mission Statement of Crowd Control and Crowd Management is as follows: The Department’s mission is to work in partnership with the public to ensure that the First Amendment rights of all who have gathered are protected and guaranteed by our personnel. We have a responsibility to the public to protect the lives and property of all people. This will be accomplished through the fair and impartial enforcement of laws. It is imperative that when faced with both crowd management and crowd control incidents, those Department personnel utilize planning, communication, openness and leadership to accomplish our mission. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 1 HOME CHAPTER 2 – Public Assemblies General Any public assembly of individuals, be it for lawful protest or for unlawful activities, may require a response by law enforcement. The response of law enforcement can range from simple observation to crowd management strategies or crowd control tactics. In a society where the right of free speech and assembly is guaranteed by the United States and California Constitutions, it is the responsibility of police officers to ensure the protection of constitutional rights of the members of the public. These constitutional guarantees apply to First Amendment activities, including participation in marches, demonstrations, picketing, protests, rallies, leafleting, signature gathering for petitions, charitable solicitation as well as singing, chanting, pantomime, skits, dance or any other activities that communicate information or ideas. The government may not prohibit or regulate these activities in a way that will prevent meaningful and effective communication. The government may impose reasonable regulations as to the time, place, and manner of any expressive activities. In determining whether the speech activity is lawful, police officers may not base their decisions on their subjective, personal views of either the political affiliation or the message of those persons exercising their right to speak. The rights guaranteed individuals by the United States and California Constitutions, including the right to assemble and engage in expressive activities, are not annulled by the declaration of a state of emergency. The declaration of a civil emergency and its communication to the public are a factor which may be considered by the government in determining whether it is reasonable to impose specific time, place, and manner limitations on the exercise of constitutional rights. Crowd Management The Los Angeles Police Department recognizes that not all crowd situations involve civil disorder or unlawful activities. Therefore, it is the policy of the Department to utilize strategies and tactics employed by law enforcement to deal with lawful assemblies in an effort to prevent escalation into an unlawful assembly or riot. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 2 Chapter 2 (cont.) Crowd Control When a preplanned or spontaneous lawful assembly deteriorates to the point where there is a potential for unlawful activity or threat of violence, the Department has a duty to stop this behavior. The nature of these events has the potential to cause injury, death, and damage to property or infringement of the rights of other members of the public. The Department must react in a lawful, measured and rapid manner to restore order. This objective will be achieved through the use of appropriate crowd control tactics and the adherence to the law, policies and procedures. If the situation results in a use of force, the force utilized to arrest violators and restore order shall be objectively reasonable. Use of Force In a situation involving Crowd Control, the Department’s Use of Force Policy shall be adhered to without exception. When the use of force is appropriate in a crowd control situation, only reasonable force to accomplish an arrest or dispersal shall be employed. Officers are permitted to use whatever force is reasonable to protect others or themselves from bodily harm. When determining the reasonable force option, officers are to be guided by “objective reasonableness” as identified in Graham vs. Conner (1998). Penal Code Section 835(a) states, “Any peace officer who has reasonable cause to believe that the person to be arrested has committed a public offense may use reasonable force to effect the arrest, to prevent escape or to overcome resistance.” Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 3 HOME CHAPTER 3 - Mission and Objectives Incident Command System (ICS) and National Incident Management System (NIMS) When faced with crowd management or crowd control incidents, Department personnel shall utilize ICS and NIMS as the standard system to effectively manage these incidents. The ICS is a command/management component of the NIMS and is an ideal model to manage unusual/critical incidents. The ICS includes five primary sections: Command, Operations, Planning, Logistics, and Finance & Administration and an optional sixth section, Intelligence/Investigation. Within each of these sections the Incident Commander shall ensure that they are staffed with personnel who are trained and familiar with each position. The Department has organized three specific teams called Incident Management Teams that are comprised of specifically trained and experienced Command and General Staff personnel to respond to both planned events and spontaneous incidents. Each of these three teams are capable of leading Department personnel during critical or unusual occurrence incidents. Crowd Management Mission and Objectives The mission of the Department when responding to the scene of a lawful assembly is to preserve public order while at the same time protecting the constitutional rights of the individuals involved. Not all crowd management incidents involve civil disobedience resulting in illegal acts and the abridgement of the rights of others. The primary objectives that must be addressed to accomplish this mission are (in priority order): Establish contact with the crowd. Obtain voluntary compliance with police directives. Minimize enforcement action. To effectively manage a crowd, several other objectives must be addressed. The following are additional suggestions and are not all-inclusive. Conduct incident planning and preparation meetings. Establish stakeholders’ interest and involvement. Arrange pre-event meetings with those identified stakeholders and organizers. Utilize ICS/NIMS. Deploy sufficient personnel to control and respond to incidents during the event. Ensure timely and appropriate Department response. Establish and maintain contact with the crowd. Ensure Department personnel have all their appropriate equipment. Provide for effective communications with all involved in the incident. Establish mass arrest, detention, transportation and booking teams. Utilize Mobile Field Force platoons. Utilize specialized vehicles and equipment when necessary. Develop a media plan and assign Public Information Officers. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 4 Chapter 3 (cont.) Establish and utilize photographic/video journal of both a chronology of the event and arrests of suspects. Continually gather and assess intelligence for tactical and operational needs. Identify and employ methods to detect weapons of mass destruction, homicide bombers and other significant threats. Crowd Control Mission and Objectives The mission of the Department during a civil disorder is to restore conditions to normal as rapidly and efficiently as possible. The primary objectives that must be addressed to accomplish this mission are (in priority order): Protect life. Restore and maintain order. Arrest violators. Protect vital facilities. Protect property. As with crowd management strategies, additional means must be employed to properly resolve crowd control incidents. Establish on scene command. Rapidly establish an overt police presence. Declare a Tactical Alert, if necessary. Separate opposing factions. Establish inner and outer perimeters. Provide specific direction on the use of less-lethal munitions. Ensure unlawful assembly declaration is understandable and provided in languages appropriate for the crowd. Develop and initiate a traffic plan. Ensure adequate support and relief for assigned personnel. Utilize Metropolitan Division assets, including Mounted Platoon and Tactical Support Elements (TSE). Request other Department resources such as Strike Teams, Bicycle Units, Shadow Teams, etc. Establish Criminal Investigation Group. Initiate Mass Arrest and Field Jail. Identify people or groups of interest. Request LAFD resources as necessary for medical and rescue incidents. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 5 HOME CHAPTER 4 - General Guidelines The mere presence of police officers at the scene of a civil disturbance will not always prevent an unruly crowd from committing further acts of violence. However, the appearance of an organized, disciplined contingent of police officers will often cause a disorderly group to abandon their disruptive activities. Experience dictates that whenever an event has the potential for mass civil disobedience, the Department must respond with a rapid Mobile Field Force capable of fulfilling a variety of tactical missions, including mass arrests and bookings. A focused and directed approach contributes to resolving the problem in the most expedient manner possible. Police Officer When directed to respond to a civil disorder, officers will be assigned to a specific post, a squad, a Mobile Field Force (MFF), or another type of tactical element. An officer’s job is to protect the community. Officers must at all times consider the safety of the public, their own safety, and the safety of fellow officers while maintaining a professional demeanor during crowd management and control incidents. Officers will show appropriate respect for others and ensure that their personal opinions are not reflected in their words, actions or deeds. Guidelines: Prior to arriving at an incident • Officers shall ensure helmets, batons, flashlights, and other related equipment are available for their immediate use if necessary. • Officers shall respond quickly and safely to the “Code Alpha” Staging Area. • Officers shall follow the instructions of supervisors. • Officers shall switch to the designated tactical frequency as directed. • DO NOT drive through an incident to reach a “Code Alpha” Staging Area. At the “Code Alpha” Staging Area • DO NOT BLOCK THE ROADWAY! For MFF assembly, vehicles shall be parked in designated areas in a Mobile Field Force configuration. • Allow for the movement of emergency vehicles. • Upon arrival at the Code Alpha location, identify and check in with the Staging Area Manager or MFF Leader. • Officers should record important information such as: ° Nature of the event; ° Identification of MFF Leader (if applicable) and Squad Leader; ° Squad assignment; ° Post and/or sector boundaries; ° Location and phone number of the Incident Command Post (ICP) and Mass Arrest and Detention Facility (if activated); ° Equipment information; Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 6 Chapter 4 (cont.) ° Assigned radio frequency and unit designation. ° Start of watch time and shift length (3/12, 4/10, etc). This information should be documented on an ICS 214. General Assignments Officers shall: • Follow directions of Squad Leaders. Do not act independently - work as a squad. • Maintain a disciplined appearance. • Stay in formation and maintain squad integrity. • Think, act, and be "professional" at all times. • Maintain firearm discipline. • Use only objectively reasonable force. • Be tolerant of verbal abuse. Crowds may attempt to provoke officers. Officers should not respond. • Distinguish clearly between participants to be arrested and innocent onlookers. • Be tactically aware of the potential danger of rooftops and high ground locations (e.g., rock and bottle throwers, snipers, etc.). • Not become complacent. • Not engage in unnecessary conversations. • Not congregate with other officers while on post. • Not make unauthorized radio transmissions. • Not abandon an assignment unless authorized by a supervisor or properly relieved by another officer. • Work as a team. Listen to the directions of your squad leader. • When designated as arresting officers, observe and record accurately the statements and actions of those arrested, both prior to and during an arrest. Squad Assignments At a crowd management or crowd control incident, officers may be assigned to an MFF squad, which will generally consist of two (2) sergeants and ten (10) officers. Each squad can be given independent assignments or can act as part of an MFF Platoon. Possible assignments include: CROWD CONTROL - In squad formation, officers will be directed by a Squad Leader to disperse a disorderly crowd in a disciplined and controlled manner. LESS-LETHAL OFFICERS - Officers assigned to this duty may utilize less-lethal munitions, at the direction of a squad leader, to disperse a crowd or stop violence. ARREST DUTY - Officers assigned to an arrest team will be responsible for arresting violators during crowd dispersal operations or during general patrol. GENERAL PATROL - Squads will be responsible for patrolling a sector or be assigned to a fixed post, thereby creating a police presence in the involved area. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 7 Chapter 4 (cont.) PROTECTING VULNERABLE, SENSITIVE OR CRITICAL LOCATIONS - Squads may be responsible for security of selected locations and for protecting them from attack. ESCORT DUTY - Squads may be assigned to provide protection and security to other City Departments or utilities in the involved area by providing them with escorts to and from their assignments. PERIMETER DUTY - Officers may be responsible for: • Detouring traffic around the involved area. • Directing traffic to alternative routes. • Preventing unauthorized entry into the involved area. Officers may also be assigned to the Incident Command Post, Shadow Teams, Bicycle Units, Mass Arrest and Detention Facility or other duties as directed by the Incident Commander. Note: Utilize physical barriers to protect your perimeter when necessary. Physical barriers may include positioning police vehicles in a specific manner, deployment of crime scene tape or other artificial barriers. Remember to avoid using items that may cause injury to the public or other officers. Squad Leader A sergeant will generally be assigned as a Squad Leader or assistant MFF Leader. In the absence of a lieutenant, a sergeant may be an MFF Platoon Leader or Incident Commander (if assigned as the Watch Commander when an incident occurs). A Squad Leader is accountable for the performance of their assigned personnel. Leadership is crucial to the success of the mission. A Squad Leader is responsible for taking control of an incident, completing the assigned mission, ensuring officer safety, protecting the community and respecting the rights of others. During crowd management and crowd control events, the Department has several important expectations of its supervisors and management. Among those expectations is that you will be a leader. A leader must be decisive, accountable and define expectations to subordinates. In doing so a leader must have situational awareness of the incident. This awareness will enable a leader to respond immediately to potential problems before they become out of control. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 8 Chapter 4 (cont.) To be an effective leader, communicate with the personnel assigned to your squad, platoon or command. Extend that communication to the event organizers and monitors. In that fashion all involved will know when and why you will take action. Ensure that your plans are simple and coordinated. Utilize Department videographers to document your actions. Above all else, remember the whole world is watching. Guidelines: Prior to responding • Sergeants shall ensure that they have all of their equipment necessary for deployment in a crowd management or control incident in their possession. • Ensure that all ICS forms are available and utilized during the incidents. • Respond quickly and safely to the “Code Alpha” staging area. • Switch to the designated tactical frequency. At the “Code Alpha” Staging Area • Squad Leaders shall conduct a thorough inspection of their assigned squads. • Collect ICS 214s and complete appropriate ICS personnel forms. • Squad Leaders shall brief their assigned squads, explaining instructions carefully to all officers and emphasizing the importance of squad integrity to control the crowd. They shall ensure officers record important information such as: ° MFF squad assignment; ° Identification of MFF Leader and Squad Leader; ° Nature of the disorder; ° Post and/or sector boundaries; ° Squad mission; ° Equipment information; ° Location and phone number of the Incident Command Post (ICP) and field jail (if activated); and, ° Assigned radio frequency and unit designation. General Assignments • Be a leader. • Ensure officers follow directions. Do not act independently - work as a team. • Always maintain a disciplined appearance. • Keep squads in formation. Maintain squad integrity. • Think, act, and be "professional" at all times. • Maintain firearm discipline. • Force shall only be used when it is objectively reasonable and consistent with Department Policy. • Understand and employ policies and procedures relating to the use of less-lethal munitions. • Follow the crowd management and crowd control strategies and tactics described in this handbook. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 9 Chapter 4 (cont.) • • • • • • • • Provide information to the Incident Commander as necessary (intelligence, crowd behavior, permission for deployment of less-lethal munitions, etc.). Be tolerant of verbal abuse. Crowds may attempt to provoke officers. Do not respond. Ensure that arresting officers adequately observe and accurately record the statements and actions of those arrested, prior to and during the arrest. Distinguish clearly between participants to be arrested and innocent onlookers. Be aware of the potential danger of rooftops and high ground locations (e.g., rock and bottle throwers, snipers, etc.). Do not become complacent. Do not allow officers to break from formation or act independently. Do not abandon a post unless authorized. Squad Assignments At a crowd control incident, a sergeant may be assigned to an MFF squad, which will, at a minimum, consist of two (2) sergeants and ten (10) officers. A sergeant will be a Squad Leader or assistant Squad Leader. A squad can be given independent assignments or can be part of an MFF Platoon. Possible assignments include: CROWD CONTROL - In squad formation, officers may disperse a disorderly crowd in a disciplined and controlled manner. Crowd management tactics should be used, when possible, prior to using crowd control tactics. LESS-LETHAL OFFICERS - Officers assigned to this duty will utilize less-lethal munitions, at the direction of a squad leader and approval of the Incident Commander, to disperse a crowd or stop violence. ARREST DUTY - Squad Leaders will be responsible for supervising the arrest of violators during crowd dispersal operations or during general patrol. GENERAL PATROL - Squad Leaders are responsible for supervising their squad when patrolling a sector or assigned to a post, thereby creating a sense of police presence in the involved area. PROTECTING VULNERABLE, SENSITIVE OR CRITICAL LOCATIONS - Squad Leaders will be responsible for supervising the security of selected locations and for protecting them from attack. ESCORT DUTY - Squad Leaders are responsible for supervising officers who are assigned to render protection and security to other City agencies or utilities in the involved area by providing them with escorts to and from their assignments. PERIMETER DUTY - Squad Leaders are responsible for ensuring a squad achieves the following objectives: • Operate a safe, effective perimeter. • Detour traffic around the involved area. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 10 Chapter 4 (cont.) • • Direct traffic to alternative routes. Prevent unauthorized entry into the involved area. Officers may also be assigned to the Incident Command Post, Shadow Teams, Bicycle Units, Mass Arrest and Detention Facility, or other duties as directed by the Incident Commander. Platoon Leader A lieutenant will generally be assigned as the Incident Commander (for Incident Commander, refer to Captain, p. 14), a Section Chief in the Incident Command Post (ICP) or a MFF Leader. The MFF Leader will command a MFF platoon and be responsible for the performance of the squads assigned to the MFF platoon. Each of these assignments is independent and should not be combined. During crowd management and crowd control events, the Department has several important expectations of its supervisors and managers. Chief among those expectations is that you will be a leader. A leader must be decisive, accountable and define expectations to subordinates. In doing so a leader must have situational awareness of the incident. This awareness will enable a leader to respond immediately to potential problems before they get out of control. To be an effective leader, communicate with the personnel assigned to your squad, platoon or command. Extend that communication to the event organizers and monitors. In that fashion all involved will know when and why you will take action. Ensure that your plans are simple and coordinated. Utilize Department videographers to document your actions. Above all else, remember the whole world is watching. Guidelines: Prior to responding • Review this handbook, as needed. • Ensure that all necessary crowd control equipment is in your possession and available for immediate use. • Establish contact with the Incident Commander and clearly understand your mission. • Determine an appropriate "Code Alpha" location (Staging Area) and notify Communications Division of that location. • Appoint an Acting Watch Commander prior to responding to the "Code Alpha" location. • Have the Acting Watch Commander make the required Area and Departmental notifications. • Determine, through Communications Division, what MFF designation shall be used as an identifier. • Respond to the "Code Alpha" location, Staging Area, or ICP, as directed, and coordinate the formation of the MFF (e.g., ensuring MFF Leader positions are staffed, equipment distributed, etc.) or staff for your assignment to the Incident Command Post. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 11 Chapter 4 (cont.) • • Bring Area Standing Plans (if applicable), Supervisor Field Operations Guide and this handbook. Switch to the designated tactical frequency. At the “Code Alpha” Staging Area Initiate the Incident Command System. • For MFF assembly, ensure vehicles are parked in an MFF configuration and allow for the movement of other emergency vehicles. • Obtain an updated situation status report from the Incident Commander. • Establish an ICP and Staging Area for responding personnel (if not already done). • Declare a Tactical Alert (if required). • Obtain separate tactical frequencies for operations and management. • Utilize specialized Department assets such as Metropolitan Division, Air Support Division, Video Unit, Training Division, and Scientific Investigation Division photographers. • With the Operations Section Chief, formulate the MFF tactics to accomplish the objective. • Complete the assigned mission(s). • Explain instructions carefully to all Squad Leaders. Emphasize the importance of squad integrity to control disorder. Ensure that all subordinates, including police officers, receive these instructions and that they record important information such as: ° MFF squad assignment; ° Nature of the disorder; ° Post and/or sector boundaries; ° Squad mission; ° Equipment information; ° Location and phone number of the incident command post and mass arrest, detention, transportation and booking team; ° Assigned radio frequency and unit designation. General Assignments • Platoon leaders shall exercise line supervision over all personnel assigned to the MFF. • Ensure the platoon follows directions. Do not allow squads to act independently - work as a team. • Always maintain a disciplined appearance. • Always maintain squad integrity. • Think, act and be "professional" at all times. • Maintain firearm discipline. • Ensure that only reasonable and necessary force is used to achieve mission objectives. • Follow the crowd management and crowd control strategies and tactics described in this handbook. • Instruct supervisors and officers to be tolerant of verbal abuse. Crowds may attempt to provoke officers. Officers should not respond to verbal abuse. • Officers on a skirmish line should hold batons in the "long extended position." Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 12 Chapter 4 (cont.) • • • • • • • • • • Ensure supervisors do not allow arrest teams to stray from police lines, as they could become surrounded. Ensure arresting officers observe and record accurately the statements and actions of those arrested prior to and during the arrest. Remember to distinguish clearly between law violators to be arrested and innocent onlookers. Be aware of the potential danger of rooftops and high ground locations (e.g., rock and bottle throwers, snipers, etc.). DO NOT permit subordinates to become complacent, no matter what their assignment. DO NOT permit anyone to break from formation or act independently. DO NOT permit unnecessary conversations. DO NOT permit officers to congregate with other officers while on post. DO NOT permit unauthorized radio transmissions. DO NOT abandon a post unless authorized by your supervisor. Upon deactivation or relief, the MFF Leader shall prepare a written summary of missions assigned and executed by the MFF, and materials expended. This summary shall be forwarded to the Incident Commander for U.O. After Action reporting. Platoon Assignments A lieutenant will generally be the leader of a Mobile Field Force platoon which will consist of four squads each with two (2) sergeants and ten (10) officers plus one sergeant as assistant MFF Leader. Each platoon can be given a variety of assignments. The possible assignments include: CROWD CONTROL - In squad formation, officers may disperse a disorderly crowd in a disciplined and controlled manner. Crowd management tactics should be used prior to using MFF crowd control tactics. LESS-LETHAL OFFICERS - Officers assigned to this duty will utilize less-lethal munitions, at the direction of a squad leader, to disperse a crowd or stop violence. ARREST DUTY - Mobile Field Force Leaders are responsible for supervising the arrest of violators during crowd dispersal operations or during general patrol. Ensure that enforcement action is taken only against violators and not uninvolved civilians. GENERAL PATROL - Mobile Field Force Leaders are responsible for supervising a platoon when assigned to patrolling a sector (division) or assigned to a post, thereby creating a police presence in the involved area. PROTECTING VULNERABLE, SENSITIVE OR CRITICAL LOCATIONS - Mobile Field Force Leaders are responsible for supervising the security of selected locations and for protecting them from attack. ESCORT DUTY - Mobile Field Force Leaders are responsible for supervising officers who are assigned to provide protection and security to other City agencies or utilities in the involved area by providing them with escorts to and from their assignments. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 13 Chapter 4 (cont.) PERIMETER DUTY - Mobile Field Force Leaders are responsible for ensuring a platoon achieves the following objectives: • Operate a safe, effective perimeter. • Detour traffic around the involved area. • Direct traffic to alternative routes. • Prevent unauthorized entry into the involved area. Officers may also be assigned to the ICP, Shadow Teams, Bicycle Units, Mass Arrest and Detention Facility or other duties as directed by the Incident Commander. Incident Commander At the scene of a civil disorder or other emergency, a Captain, Commander or Deputy Chief, will generally assume the role of Incident Commander. If not the Incident Commander, a captain will be directed to a specific Command or General Staff assignment. In either case, a Command or General Staff Officer will be responsible for coordinating, controlling and directing the police response. A Captain may be responsible for quickly implementing a plan and evaluating the performance of subordinates to guarantee that their efforts are consistent with Department policy and guidelines. Guidelines: General • Respond, assume command and the role of Incident Commander and initiate ICS. • Accept responsibility for the incident and clearly establish authority for control of the incident. • Clearly define objectives and missions for all assigned to the incident. • Ensure the establishment of an ICP Cadre with personnel assigned to the following positions: ° Operations Section - Staging Manager ° Planning Section - Documentation Unit - Situation Status Unit (SitStat) - Resource Status Unit (ReStat) ° Logistics Section ° Finance and Administration Section (optional) • Obtain briefing from current Incident Commander. • Review and establish, as necessary, intelligence information. • Develop and assign specific missions to respond and quickly overwhelm unlawful groups and restore order as soon as possible. However, gain situational awareness and when possible, slow the pace of the event through effective leadership. • Request necessary resources and consider need for Mutual Aid. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 14 Chapter 4 (cont.) Public Assemblies • The Incident Commander, prior to declaring an unlawful assembly, shall refer to the Department Guidelines for Crowd Management and Crowd Control contained in this manual. • Incident Commanders should follow the guidelines in this manual. • Before any public assembly is declared unlawful, the Incident Commander should evaluate the feasibility of isolating and arresting those responsible for the unlawful conduct and if feasible, arrest them (NLG V. Cola, CV 01-6877fmc). • Demonstrators who participate in lawful assemblies shall not be prevented from using public sidewalks to join or exit a lawful march or from using any public sidewalk. The marches will not be allowed to disrupt pedestrian movement and/or illegally prevent lawful businesses from operations (NLG V. Cola, CV 01-6877 fmc). At Relief • At the end of the operational period, the outgoing Incident Commander shall brief the incoming Incident Commander. • Both Commanders (incoming and outgoing) shall debrief lieutenants and sergeants after relief to ascertain: ° Changing patterns of the disorder; ° Strength of the disorderly group; ° Any police-related incidents during the last watch; and, ° Any recommendations as to changes in overall strategies, etc. Deployment of Resources • Formulate and implement an IAP. • Estimate the size, movement, motivation, intent, and leadership of the disorderly group. • Identify the participants of the crowd or disorderly group. • Identify the geographic boundaries of the area involved. • Estimate the duration and intensity of the disorder. • Use Area detectives for support roles – Investigative duties, Mass Arrest and Detention Facility, Command Post staff, station defense, etc. • Use sectoring and cordoning strategies when appropriate. • Consider using specialized Department assets such as Metropolitan Division, Air Support Division, the Mounted Platoon, Video Unit, Training Division, Motor Strike Teams, Shadow Teams, Bicycle squads, and Scientific Investigation Division photographers. • Consider other available City resources (e.g., Department of Transportation). Task Force Assignments CROWD CONTROL - The Incident Commander is responsible for taking action against unlawful and disorderly groups. Using MFF tactics, the Incident Commander will ensure the dispersal of disorderly crowds in a disciplined and controlled manner. When possible, an Incident Commander should use proper crowd management tactics prior to using MFF crowd control tactics. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 15 Chapter 4 (cont.) ARREST DUTY - The Incident Commander is responsible for implementing appropriate arrest tactics under the supervision of lieutenants and sergeants. GENERAL PATROL - Assigned personnel are responsible for providing necessary officers to patrol a sector, thereby creating a sense of police presence in the involved area. PROTECTING VULNERABLE, SENSITIVE OR CRITICAL LOCATIONS - The Incident Commander is responsible for correctly identifying locations requiring security and for providing the same. The Incident Commander is responsible for establishing liaison (Liaison Officer) with representatives of other agencies, and for providing staging locations from which escorts can be provided. (See Special Operations Bureau for further.) PERIMETER DUTY - The Incident Commander must identify the borders of the involved area and provide a safe and effective perimeter. The purpose of the perimeter mission is as follows: • Detour traffic around the involved area. • Direct traffic to alternative routes. • Prevent unauthorized entry into the involved area. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 16 HOME CHAPTER 5 - Crowd Management Strategies and Tactics Crowd management differs from crowd control in that crowd management describes strategies and tactics employed by law enforcement agencies to deal with lawful assemblies as opposed to unlawful assemblies. The purpose of these strategies and tactics is to prevent a lawful assembly from escalating to an unlawful assembly or riot. Should a group become an unlawful assembly, crowd control methods must then be used. The objectives of crowd management are (in priority order): • Ensure protection of First Amendment Rights. • Establish contact with the crowd. • Obtain voluntary compliance with police directives. • Minimize enforcement action. General Principles of Crowd Management 1. Ensure protection of First Amendment Rights. The Incident Commander has a responsibility to ensure that those gathered are provided the opportunity to exercise their First Amendment Rights. As such, he or she will ensure that all appropriate resources are requested and utilized to properly police the incident. 2. Establish Contact with the Crowd. Experience and studies have shown that crowds are frequently not anonymous gatherings of strangers. They are more likely to consist of groups of known people. As such, formal or informal leaders will exist. Supervisors or senior officers should attempt to make contact with identified formal or informal leaders of a crowd. Additional considerations should be given to utilizing various community groups and organizations when planning for crowd management and control incidents. City resources are also available to an Incident Commander during both the planning stage and operational phase of these types of incidents. Personnel from the Department’s Community Relations Section are an outstanding resource and conduit of information to various groups, organizations and governmental entities that will assist the Incident Commander to safely resolve an incident. During the course of a march, demonstration, protest, rally or other First Amendment protected activity, officers may observe behavior by individuals which constitutes unlawful conduct. The unlawful behavior of individuals, or unlawful conduct observed in an isolated incident, should not automatically form the basis for declaring an otherwise lawful assembly to be unlawful. Those individuals or groups should be monitored to ensure they act in a lawful manner. To protect the expressive rights of the entire assembly, and the safety and rights of the public at large, officers should endeavor where they believe it practical to give warning to the leaders or spokespersons of the activity, the other participants, and/or the individuals who are acting, or have acted unlawfully, about any observed unlawful or potentially unlawful conduct. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 17 Chapter 5 (cont.) Officers should instruct them clearly about what they must do to comply with the laws, so as to allow an opportunity to correct the conduct in question. Interaction with the crowd will allow officers to understand the purpose and motives of the group and allow an opportunity to suggest ways for the group to avoid illegal actions that would necessitate a more aggressive police response. This is referred to as “reading the crowd.” 3. Control of Personnel. An otherwise peaceful group can be aroused by inappropriate police conduct, such as individual officers engaging in verbal disputes with individual crowd members or by showing contempt for the crowd or its beliefs. If possible, it is preferable for a crowd to remain focused on the event itself rather than on police tactics used at the event. A show of force may be appropriate as a deterrent to some unruly crowd situations. Careful consideration of the circumstances must be given prior to employing a show of force. Avoid displaying a “challenge” mentality. When possible, keep a disciplined control force out of public sight ready to respond as the need arises. 4. Separate Opposing Factions. Often a specific issue will polarize groups into hostile opposing factions. When possible, officers should delineate separate areas for each group to exercise their legal rights to picket or demonstrate. Physical barriers or police lines may be used to effect this separation. For planned events, specific areas should be identified and physically established for use by groups expected to demonstrate. Physical barriers, natural or strategically placed, can assist control forces in managing opposing groups. 5. Gather Intelligence. Information that has been evaluated and found to be valid is of utmost importance to the management of groups. The most obvious place to obtain information on what is to occur is from the group itself. Establish contact with group members before an event if possible. During the event, attempt to maintain contact with group leaders to stay aware of any changes in their plans or actions. Such information may be incomplete or inaccurate, but experience has shown in the past that it is better to listen to groups than ignore them. 6. Knowledge of Previous Events. Crowd management procedures start not with a specific event but with events in the past and those occurring elsewhere. Supervisors may examine open sources of information and/or after-action reports from prior events or from similar events in order to identify group behavior and successful and unsuccessful tactics and strategies. It is highly recommended that supervisors and commanding officers properly document the results of actions taken at a crowd management or crowd control incident. 7. Alternate Location for Assembly. When it is determined that an assembly may become unlawful due to the inappropriate nature of the location (e.g., an otherwise lawful crowd exceeds the size of the location and spills onto and blocks the public sidewalk), police should meet with the event organizers to select alternate locations or modify the route to ensure that the incident continues in a lawful manner. INCIDENT MANAGEMENT TEAM PROCEDURES Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 18 Chapter 5 (cont.) INTRODUCTION Traditionally, the Department has defined Area command responsibilities based on population, calls for service, boundaries and Reporting Districts. Territorial Imperative has served us well in holding police officers and command officers accountable for community-oriented policing. However, Unusual Occurrences, i.e., earthquakes, fires, public assemblages, criminal/terrorist incidents, etc., do not fall neatly within geographic boundaries. Furthermore, when considering public-safety disciplines, technologies and strategies required to manage singular and multiple simultaneous events, expertise requirements exceed rank and agency position. The 21st Century emergency-preparedness strategies, i.e., all-hazards, special events and criminal terrorist incidents, include regional response, mutual aid and specialized command expertise. No longer can the planning and command of “high consequence events” be limited to rank or position within the organization. Today’s complex events need to be managed by highly trained specialists. An Incident Management Team (IMT) is a team of specialists familiar with all aspects of emergency management. They are experienced leaders, decision makers and strategic thinkers, self actualized and willing to develop themselves into a cohesive team focused on managing large, complex, high consequence incidents. The IMT model has been discussed for several years and has included the selection and training of a specialized cadre comprising IMT Command and General Staff positions. These positions are commensurate with the National Incident Management System (NIMS), Incident Command System (ICS), and include Command and Staff Officers from within the Department. Incident Management Teams are intended to address all-hazards incidents, i.e., earthquakes, fires, evacuations and other man-made or natural disasters; special events including marches, rallies and public assemblages; crowd management strategies, Mobile Field Force resources, and sophisticated crime scenes. Furthermore, IMTs must be agile enough to integrate into regional, allied agencies. IMPLEMENTATION Following May 1, 2007, and the aforementioned incidents, the Chief of Police directed that the IMT concept be institutionalized within the Department. It is the intent that the IMT model becomes regional and assists not only the Department, but also all public safety agencies in Unusual Occurrence management. The IMT model has demonstrated success in management of incidents that cross jurisdictional boundaries and require significant resources and coordination. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 19 Chapter 5 (cont.) CRITERIA FOR STAFFING Incident Management Teams shall be deployed based on the following criteria: 1. At the direction of the Chief of Police, or his designee. 2. To high consequence, complex incidents and/or pre-planned events, such as those that transcend geographic boundaries requiring coordination amongst City entities and/or public-safety agencies. OPERATIONS The Department’s Incident Management Team cadres shall consist of three teams of selected Staff and Command personnel. Teams shall be designated as Red (R), White (W) and Blue (B). Each Team will be on call for a pre-designated Deployment Period (DP). When activated by the Chief of Police or his designee, the IMT Leader shall have access to Department resources for staffing Incident Command System (ICS) positions. A total of 27 Command and Staff Officers have been selected and are assigned to the three IMTs, with each team consisting of nine personnel. Preliminary staffing of an IMT will include the following seven positions: Incident Commander, Deputy Incident Commander, Safety Officer, Liaison Officer, Planning Section Chief, Logistics Section Chief, and Operations Section Chief. The remaining personnel will be assigned as deputies to the Operations and Planning Section Chiefs (the Incident Commander may appoint additional staff positions as the incident expands). In addition to the IMT personnel, Commanding Officers from the Division(s) affected by the incident/event should be incorporated into the ICS hierarchy regardless of whether or not they are a member of an IMT, as they are stakeholders both in terms of personnel resources and in post-incident/event management. COMMAND At the direction of the Chief of Police or his designee, the IMT Leader should assume the role of Incident Commander and manage the incident. The concerned Geographic Bureau Commanding Officer may choose to monitor the event and/or assume incident command.1 Should the Geographic Bureau Commanding Officer choose to assume incident command, they shall follow the transfer of command protocols, communicate their intention to the Department, and designate the IMT Leader as Deputy Incident Commander. 1 In the event that multiple geographic Bureau Commanding Officers desire to assume command of an incident/event, the Director, Office of Operations, or his designee, will determine who shall actually assume command. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 20 Chapter 5 (cont.) RESPONSIBILITIES IMT Leader Each IMT shall have a Leader who shall be responsible for providing monthly team availability and deployment information to RACR Division. RACR Division Each Deployment Period, RACR Division shall contact the concerned IMT Leader to ascertain staffing requirements. Functions 1. Incident Commander – The individual responsible for incident management, all incident activities, development of strategies and objectives, ordering and releasing resources. The Incident Commander has overall authority and responsibility for conducting incident operations, and approves the IAP. 2. Deputy Incident Commander - The individual who is fully qualified to assume the Incident Commander’s position in his/her absence. The Deputy Incident Commander assists the Incident Commander during on-going events and/or is his/her relief. 3. Safety Officer – The individual designated by the Incident Commander to monitor and ensure operational safety during the incident. This person reports directly to the Incident Commander. 4. Liaison Officer – The individual responsible for coordinating with representatives from cooperating and assisting agencies, and other stakeholders. 5. Logistics Section Chief (and Deputy) – Individual who coordinates resources and other services to support incident management (facilities, services and materials). 6. Planning Section Chief (and Deputy) – Individual responsible for development of the IAP, collection, coordination, evaluation and dissemination of operational information related to the incident. The Planning Section Chief is responsible for situation and resource status. 7. Operations Section Chief (and Deputy) – Responsible for the tactical operations; develops tactics and strategies to accomplish objectives. In order to maintain continuity of operations during prolonged events (in excess of 12 hours), individual Operations Section Chiefs will be assigned to 12 hour, A/B Watches. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 21 Chapter 5 (cont.) DEPLOYMENT IMTs shall be pre-designated and assigned to a rotating schedule as indicated below. However, if there are multiple, qualifying incident/events during a single Deployment Period (DP), the IMT assignment will be rotated amongst the three teams. DP 1 12 2 13 3 4 5 6 7 8 9 10 11 IMT R B W R B R W B R W B R W NOTIFICATION According to the aforementioned schedule, RACR Division shall each DP, ensure the appropriate on-call IMT is staffed with nine IMT cadre personnel. Due to vacations, conflicting schedules etc., IMT “on-call” cadres can be substituted utilizing other cadre members with the approval of the Commanding Officer, Special Operations Bureau. NOTE: Attempts should be made to avoid substitutions as much as possible to help maintain the integrity and unity of each IMT. ON-CALL STATUS Staff and Command personnel whose status is on call can be out of town during their assigned DPs; however, assigned personnel are subject to recall and deployment within four hours of notification. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 22 HOME CHAPTER 6 – Unlawful Assembly Definition/Court Mandated Policy For Policing Unlawful Assemblies * See footnote It is vitally important for supervisors and officers to understand the definition of an unlawful assembly. The decision to escalate our response from crowd management strategies to crowd control tactics must be based on the ability to observe and articulate the existence of an unlawful assembly. The definition of an unlawful assembly has been set forth in Penal Code Section 407 and in subsequent court decisions. Penal Code Section 407 states, “Whenever two or more persons assemble together to do an unlawful act, or do a lawful act in a violent, boisterous, or tumultuous manner, such assembly is an unlawful assembly.” “Boisterous” and “tumultuous” have been strictly limited by the courts to mean conduct that poses a clear and present danger of imminent violence. Penal Code Section 407 identifies two different circumstances when an assembly may be declared unlawful. The first circumstance is when persons assemble to do an unlawful act. The unlawful act must be an act made criminal by law or by the commission of an overt act which leads to a violation of the law (Chambers v. Municipal Court (1977) 65 Cal.App.3d 904). In the absence of any unlawful conduct in an assembly, an assembly may be declared unlawful only if there is reasonable cause to believe that the assembly’s purpose is unlawful. If the persons are assembled to do that unlawful act, then they are an unlawful assembly. It does not matter that the persons assembled also intend to do other lawful acts. The second factual setting is when persons assemble to do a lawful act in a "violent, boisterous, or tumultuous manner." However, as previously stated the courts have added the requirement that the manner in which the assembled persons are acting must be itself violent, or pose a clear and present danger of imminent violence. A demonstration that disturbs peaceful enjoyment of property through noisy singing and chanting is not an unlawful assembly unless it also poses the threat of clear and present danger of imminent violence. Penal Code Section 409 states that every person remaining present at a place of riot, route or unlawful assembly after being warned to disperse is guilty of a misdemeanor, except public officers and those present to assist them. Penal Code Section 416 states that if two or more persons assemble for the purpose of disturbing the public peace, or committing any unlawful act, and do not disperse on being desired or commanded so to do by a public officer, the persons so offending are severally guilty of a misdemeanor. *Legal Affairs Division must be consulted prior to any revisions being made to Chapter 6. Guidelines for Crowd Management and Crowd Control Volume 5 of the LAPD Emergency Operations Guide 23 Chapter 6 (cont.) In addition, based upon a January 2008, court order, the LAPD will adhere to the following Court mandated guidelines. 1. Basic Principles: All persons have the right to march, demonstrate, protest, rally or perform other activities protected by the First Amendment of the United States Constitution and the California Constitution. The government may impose reasonable and narrowly tailored restrictions on the time, place, and manner of conducting these activities. However, any limitations or restrictions placed on demonstrations or other First Amendment activities must be justified by the requirements of maintaining public safety, public health, or safe access/egress from the area, and should restrict no more speech than necessary to further these substantial government interests. Officers must not be affected by the content of the opinions being expressed nor by the race, gender, linguistics, national origin, sexual orientation, physical disabilities, appearances, or affiliation of anyone exercising lawful rights. 2. Helicopters: Los Angeles Police Department (LAPD) helicopters assigned to monitor permitted crowd control incidents shall operate the aircraft at reasonable altitudes so as to avoid disruption of First Amendment protected activities. The Incident Commander will coordinate with event organizers to help avoid over flights during keynote speaker presentations. This action is not intended to prevent LAPD helicopters from response to emergent situations requiring immediate police presence during such crowd control events. 3. Marches: Demonstrators, while participating in lawful assemblages, shall not be prevented from using public sidewalks to join or exit a lawful march or from using any public sidewalk adjacent to a lawful march route. However, marchers will not be allowed to obstruct or unreasonably interfere with pedestrian movement and/or prevent lawfully open businesses from operating while on the sidewalk when such conduct violates any applicable law. LAPD will consider the practicality of facilitating demonstrations that may temporarily block traffic and LAPD shall include the subject in its Crowd Management training. 4. Motorcycles/Bicycles/Motor Vehicles: Police motorcycles, bicycl

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