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December 1999

Volume 68
Number 12
United States
Department of Justice
Federal Bureau of
Investigation
Washington, DC
20535-0001
Louis J. Freeh
Director
Contributors' opinions and
statements should not be
Features
considered an endorsement by
the FBI for any policy, program,
or service.
The Attorney General has
determined that the publication Law enforcement officers must become
of this periodical is necessary in Building International Cases
the transaction of the public
business required by law. Use of
By Stephen P. Cutler 1 familiar with the methods available to
gather evidence abroad and bring
funds for printing this periodical international criminals to justice.
has been approved by the
Director of the Office of
Management and Budget. Understanding Subjects By better understanding the
The FBI Law Enforcement
Bulletin (ISSN-0014-5688) is
with Paranoid Schizophrenia 8 characteristics of individuals with
paranoid schizophrenia, officers may
published monthly by the By Kris Mohandie
peacefully resolve potentially violent
Federal Bureau of Investigation, and James E. Duffy
935 Pennsylvania Avenue, situations.
N.W., Washington, D.C.
20535-0001. Periodical postage Vehicle Stops Involving Traffic stops are never routine, but when
paid at Washington, D.C., and
additional mailing offices.
Postmaster: Send address
Extremist Group Members 18 they involve members of extremist
groups, they could prove deadly.
changes to Editor, FBI Law By James Kobolt
Enforcement Bulletin, FBI
Academy, Madison Building,
Room 209, Quantico, VA 22135.

Editor
John E. Ott Departments
Managing Editor
Kim Waggoner
Associate Editors
Glen Bartolomei
Cynthia L. Lewis 6 Bulletin Reports 24 FBI Leadership
Bunny S. Morris BJS Web Site Guide Fellows Program
Art Director Task Force Training
Brian K. Parnell
Weed and Seed Evaluation 25 1999 Subject Index
Assistant Art Director
Denise B. Smith
Staff Assistant 17 Book Review 28 1999 Author Index
Linda W. Szumilo Official Negligence
Internet Address
leb@fbiacademy.edu

Cover photos
© Don Ennis, © Mark C. Ide

Send article submissions to


Editor, FBI Law Enforcement
Bulletin, FBI Academy, Madison
Building, Room 209, Quantico,
VA 22135.

ISSN 0014-5688 USPS 383-310


Building International Cases
Tools for Successful Investigations
By STEPHEN P. CUTLER
© Digital Stock

A lmost daily, news stories


feature fugitives who avoid
arrest by moving from
country to country, narcotics orga-
their own jurisdictions, and they
must be prepared to work in almost
any other jurisdiction of the world,
as well. By developing a better un-
second. Treaties dating from as far
back as the 1800s, with varying re-
quirements for each country, also
may apply. Inherent limitations in
nizations that launder their ill-got- derstanding of international investi- U.S. laws and international laws
ten gains in spite of a network of gative techniques and becoming that differ among countries also cre-
national laws, as well as parents more aware of the myriad problems ate difficulties. For example, some
who move children from one coun- that could occur with investigations countries allow foreign police offi-
try to another in violation of cus- abroad, officers may find more of cials to enter their nations to inter-
tody orders. Criminals seem to their investigations proceeding to view voluntary witnesses and ob-
cross international borders more successful conclusions. tain documents from cooperative
rapidly and frequently than ever be- Language problems top the list individuals or firms. Other coun-
fore, and the police seem to be at a of the many obstacles to U.S. inves- tries, however, regard it as a viola-
disadvantage. tigations abroad, with organiza- tion of their sovereignty, or even
Law enforcement officials must tional differences among law en- consider it a crime, if foreign police
conduct quality investigations in forcement agencies coming a close conduct investigations in search of

December 1999 / 1
“ ...law enforcement
officers must
become familiar
with the methods
Criminal Police Organization, more
commonly known as INTERPOL.
Federal agents can use INTERPOL
or send a request through their
agency’s representative in the U.S.
embassy. The attachés from the
available to gather FBI, DEA, and U.S. Customs Ser-
evidence abroad and vice, as well as agents from the U.S.
bring international Secret Service and the U.S. Depart-
criminals to justice. ment of State, posted at various
U.S. embassies abroad, can help


both national and international of-
Special Agent Cutler is detailed from the FBI’s ficers obtain international police-
International Relations Branch to INTERPOL’s to-police assistance. These agen-
U.S. National Central Bureau in Washington, DC. cies overcome the language
barriers and can best determine the
most appropriate authority to pro-
evidence, even if only done by already have been convicted, for- vide the assistance needed. How-
telephone. eign law enforcement agencies may ever, if the foreign country’s police
How can law enforcement of- be able to expel fugitives, or stop can help with an investigation but
ficers negotiate these foreign ob- them from entering the country alto- not on a police-to-police basis,
stacles? Whether they use informal, gether and send them back to the agencies can use more formal
police-to-police assistance or more country from which they departed. procedures—specifically, mutual
formal procedures, law enforce- The police-to-police assistance assistance, multilateral treaties, let-
ment officers must become familiar available from other countries may ters rogatory, executive agree-
with the methods available to gather depend on the type of criminal case ments, and extradition.
evidence abroad and bring interna- involved. Most countries require
tional criminals to justice. “dual criminality,” where their po- Mutual Assistance
lice can assist police of another In the United States, mutual as-
Police-to-Police Assistance country only if the conduct in ques- sistance refers to the act of obtain-
Police-to-police assistance cov- tion constitutes a crime in both ing evidence through another
ers any investigative work that of- countries. For instance, a dual- country’s compulsory process (e.g.,
ficers legally can perform in their criminality country whose law via subpoena, search warrant, or
own countries, without a court or- has not yet made laundering of court order). To succeed, mutual as-
der, on behalf of foreign police. Just proceeds from extortion, fraud, or sistance requests to other countries
as police from one jurisdiction may other offenses illegal cannot help need the local prosecutor’s active
help those in another throughout the U.S. law enforcement investigate involvement. The U.S. Department
United States, police in other coun- these types of crime. Generally, if of Justice, Criminal Division, Of-
tries may provide assistance, de- police in another country cannot as- fice of International Affairs (OIA)
pending on their countries’ laws. sist with certain types of crime, they also must participate. Trial attor-
Thus, in some countries, law en- make it known at the onset of the neys from the OIA handle all U.S.
forcement organizations can inter- investigation. requests for foreign evidence re-
view voluntary witnesses and con- For a police-to-police assis- quiring compulsory process in the
duct other routine investigation tance request, state and local law requested country. This office also
with little difficulty. In some in- enforcement simply can forward a coordinates the collection of evi-
stances, particularly if fugitives request through the International dence in the United States for other

2 / FBI Law Enforcement Bulletin


countries. Finally, OIA’s personnel approve the presence of defense to verify that it is complete and to
can advise prosecutors and investi- lawyers at trial testimony deposi- determine if they need to submit a
gators from the United States on tions, address the confidentiality of follow-up request. Because OIA
how best to succeed with their evi- certain requests, and specify how does not assist with translations, the
dence requests to foreign countries. the parties should pay for any ex- requester bears the responsibility to
The types of mutual assistance traordinary costs associated with an have evidence in a foreign language
available from various countries de- MLAT request. translated.
pend on each country’s laws and on The MLAT request explains
whether the United States has a bi- the facts of the case as they are Multilateral Treaties
lateral mutual legal assistance known to U.S. authorities and seeks Where an MLAT involves two
treaty (MLAT) or other treaty rela- only evidence clearly relevant to countries, a multilateral treaty or
tionship with a specific country. those facts. The request also identi- convention binds the several coun-
The United States currently has 19 fies the subjects or defendants; lists tries that ratify it. The procedures
MLATs, with an additional 25 ne- names and complete contact/identi- and contents of a multilateral treaty
gotiated and awaiting ratification. fication information for witnesses, request are similar to an MLAT re-
An MLAT clearly defines the banks, or companies in the foreign quest. The officer and the prosecu-
obligations of the parties, to include country; and specifies the particular tor work through the OIA, and the
the offenses covered, which author- procedures the country should fol- requested country is obligated to as-
ity within each country can make an low while executing the request. sist if the request complies with the
MLAT request, how an agency In general, the more specific the treaty.
must transmit the request, and the request, the more detailed the In drug cases, a multilateral
scope of the assistance that the par- response. treaty commonly called the Vienna
ties will provide one another. An Convention may apply. More than


MLAT may obligate one treaty par- 130 countries, including the United
ticipant to use the requesting States, have ratified this treaty. The
country’s legal procedures in ex- Vienna Convention covers not only
ecuting a request. For example, an The types of drug offenses but associated money
MLAT can provide that the re- mutual assistance laundering and asset forfeiture
quested country will authenticate available...depend cases, as well. However, a country’s
documents (i.e., certify them) using on each country’s assistance will depend on their laws
the requesting country’s proce- in these areas.
dures. This can facilitate the admis-
laws.... The Hague Convention on the
Civil Aspect of International Child


sibility of relevant foreign docu-
ments, for instance, Swiss bank Abduction may prove useful to in-
records in a U.S. trial. Terms of the vestigators in parental kidnapping
MLATs often help agencies obtain The OIA signs the MLAT re- cases. It provides the means for re-
information from foreign banks that quest and transmits it with a transla- turning a child to the custodial par-
may have more restrictive mecha- tion, if necessary, directly to the ent if the child has been wrongfully
nisms on account information. Ad- central authority of the requested removed from the United States and
ditionally, an MLAT may provide country, usually in the Ministry of taken to, or retained in, another
assurances of confidentiality, ad- Justice. The requested country country that also has signed this
missibility of evidence, and oppor- sends the evidence to the OIA, convention. The OIA and the State
tunities for both sides to confront which forwards it to the prosecutor. Department’s Office of Citizens
the witnesses for depositions. An Upon receipt, agencies making the Consular Services represent the
MLAT may provide for the transfer request should immediately com- best sources of guidance in using
of witnesses who are in custody, pare the evidence with their request the provisions of this convention.

December 1999 / 3
Letters Rogatory country’s Ministry of Foreign Af- these agreements, officers should
If police need evidence from a fairs. This office then relays the let- request foreign evidence as soon as
country that has not yet established ter to its Ministry of Justice, which possible. Congress addressed this
an MLAT with the United States or forwards it to the prosecutor and time-management issue in the Com-
for an offense that the appropriate police, who execute it. Evidence prehensive Crime Control Act of
MLAT or convention does not obtained in the execution of a letter 1984 and created Title 18, U.S.
cover, they must fall back on an rogatory returns to the United States Code, Section 3292. This law al-
ancient international procedure through the same channels. In most lows a court to extend the statute of
called a letter rogatory. This “letter” countries, letters rogatory can take limitations for up to 3 years to se-
from a court requests that a court in 6␣ months or longer to produce re- cure evidence from a foreign coun-
another country use its compulsory quested evidence, making them less try. This only applies if the United
process to obtain evidence needed efficient and generally slower than States has made an official request
for a criminal or civil matter. Al- MLAT requests. to that country, and the country rea-
though the requested country has no sonably appears to have evidence of


obligation to assist, it usually does an offense. After indictment, how-
so as a matter of comity (i.e., an ever, Title 18, U.S. Code, Section
international favor). Some coun- 3161(h)(9) allows a court to ex-
tries will only execute foreign let- Investigators clude only up to 1 year of time to
ters rogatory if the requesting coun- should think of obtain foreign evidence under the
try can reciprocate. Typically, the alternatives to Speedy Trial Act .
letter rogatory is executed using the extradition, such
requested country’s procedure for Extradition
gathering evidence. For instance,
as deportation or Today, it seems that wanted
when obtaining documents for the exclusion from the persons travel from country to
United States, authorities from a other nation under country with virtually the same ease
foreign country may seize them immigration laws. that criminals travel from state to
from a bank as they would for use in state. This poses unique challenges


their own criminal investigations. to law enforcement officers trying
U.S. authorities generally would to bring criminals to justice. While
use a subpoena. such organizations as INTERPOL
U.S. prosecutors work with Executive Agreements can disseminate wanted-person in-
OIA to draft the letter rogatory in In some cases, the police can formation quickly, the actual legal
accordance with the requested use executive agreements to obtain process of arresting and return-
country’s requirements. Because a evidence from specific countries. ing fugitives can become lengthy
letter rogatory is a request by a For example, the United States has and complex.
court, the prosecutor must present it an executive agreement with Co- The term “provisional arrest”
to a U.S. judge or magistrate for lombia that defines terms when evi- applies to the mechanism for imme-
signature with a motion, a memo- dence will be shared. Other agree- diate arrest pending submission of a
randum in support, and a proposed ments address tax, customs, and formal extradition request and sup-
order. If the letter must be trans- asset-sharing issues. The proce- porting documents. This is reserved
lated, the prosecutor’s office must dures and contents of requests un- for urgent cases and imposes time
incur this expense. der executive agreements are simi- limits as well as the possibility of
OIA transmits the letter roga- lar to MLAT requests but remain release on bail for the subject.
tory through the State Department more limited in scope. Extradition, on the other hand,
and the appropriate U.S. embassy Because of the time involved in is the return of fugitives to the juris-
for delivery to the requested requesting evidence under any of diction in which they are wanted.

4 / FBI Law Enforcement Bulletin


This is a formal process governed meals, as well. In a few countries, and criminal liability imposed by
by treaty and normally involves the the United States also must retain the country from which the fugitive
U.S. Department of State and OIA. a lawyer to present the extradition is removed, that may actually result
Treaty provisions may vary from request. in prosecution of U.S. law enforce-
country to country, and not all do- In most cases, extradition im- ment officers. The U.S. Department
mestic law violations are subject to poses a “rule of specialty” on the of Justice prohibits forcible returns
extradition. For example, some government. This means that sub- without prior approval by senior
treaties became effective in the late jects may be tried only for the U.S. government officials.
1800s and do not address such of- crimes for which they were extra- As an alternative to extradition,
fenses as wire fraud, mail fraud, or dited. In addition, countries may not the United States may be able to
parental kidnapping. Agencies extradite fugitives for crimes for transfer prosecution to the countries
should coordinate with OIA to de- which they already have been pros- in which the defendants reside. Be-
termine the applicability of treaties ecuted in another country. Speedy cause of the expense and logistical
in a given case. trial problems may arise and must difficulties, however, agencies may
Formal extradition requests dif- be addressed properly in the domes- want to use this option only as a last
fer from provisional arrest requests tic courts. resort.
in a manner similar to the difference © Digital Stock
between domestic criminal trial Conclusion
cases that require proof beyond a Investigations beyond the bor-
reasonable doubt and arrest warrant ders of the United States are well
affidavits that require probable within the capabilities of most law
cause. The agency must present the enforcement agencies. In order to
extradition request in writing and develop more thorough cases, offi-
needs certified copies of arrest war- cers and prosecutors must pursue
rants, charging documents, and cases and criminals wherever leads
judgments and convictions. It also take the investigation. International
must produce an affidavit from the borders should not obstruct justice.
prosecutor concerning the statutes Officers should become familiar
involved, identification informa- with the mechanisms that exist to
tion, and evidence in support of the obtain evidence and apprehend fu-
extradition request. OIA assists in gitives abroad.
the preparation of documents and The ability to deal effectively
their transmission through diplo- with other nations grows in impor-
matic channels. Investigators should think of al- tance daily. Using the tools cur-
The requesting jurisdiction ternatives to extradition, such as de- rently available, U.S. law enforce-
pays for translations and travel re- portation or exclusion from the ment officers have the ability to
lated to the return of the fugitive other nation under immigration reach around the world to enforce
and other related matters. The State laws. OIA can assist in exploring the law.
Department translates the extradi- this alternative, which it often coor-
tion request and currently charges dinates with the liaison at the The author thanks Sarah McKee, OIA
trial attorney, for her invaluable
$204 per 1,000 words. State and country’s embassy in the United
assistance in preparing this article.
local jurisdictions also must pay for States. Forcible return, known as
round-trip travel and per diem for extraordinary rendition, also may
two U.S. marshals to escort the fu- be an option but poses special con-
gitive back to the United States and siderations. Some potential adverse
the fugitive’s one-way airfare and consequences exist, such as civil

December 1999 / 5
Bulletin Reports

Guide to the BJS Web Site


In addition to publishing traditional paper publications, the Bureau of Justice Statistics publishes a
variety of materials electronically, including statistical graphics and spreadsheets, on its Internet site at
http://www.ojp.usdoj.gov/bjs/. The BJS Web site has a wealth of information, including crime data
abstracts, homicide trends, drugs and crime facts, and juvenile violence information. The web site
presents information topically, chronologically, and alphabetically. The site presents BJS publications
by topic or subtopic, arranged with the most recent publication first, or listed alphabetically on the
publications page. The site also includes information about data collections and links to related sites.
Periodically, BJS will publish Guide to the BJS Website to notify agencies of updates and additions
to its electronic collection. For the most up-to-date information about additions to the BJS Web site,
check What’s New at http://www.ojp.usdoj.gov/bjs/whtsnw2.htm or subscribe to JUSTINFO, the
electronic newsletter sent out every 2 weeks by the National Criminal Justice Reference Service
(NCJRS) at http://www.ncjrs.org/justinfo/index.html. Agencies without Internet access may contact
NCJRS at 800-732-3277.

Center for Task Force Training


Created in 1991, the Center for Task Force Training (CenTF) provides specialized training to law
enforcement personnel serving on drug task forces. The Bureau of Justice Assistance (BJA), Office of
Justice Programs, U.S. Department of Justice, administers the program and provides funds either
through grants or state or local funds.
The CenTF strives to increase the operational effectiveness of task forces in two areas: task force
command and methamphetamine investigation management. The narcotics task force workshop pro-
vides management-level training in the operation of a multijurisdictional task force to narcotics task
force commanders, supervisors, and senior investigators. The methamphetamine investigation manage-
ment workshop addresses the operational aspects of managing methamphetamine investigations, as
well as other problems specific to these types of investigations.
The Institute for Intergovernmental Research, a nonprofit organization specializing in law enforce-
ment research and education, coordinates CenTF training workshops. Representatives from state,
county, or local law enforcement agencies; the applicable Regional Information Sharing Systems
Intelligence Center; and the area’s U.S. attorney’s office cohost the training, and experienced, com-
mand-level instructors teach each workshop. The lessons learned from the BJA-funded Organized
Crime Narcotics Trafficking Enforcement Program provide the basis for the training.
Participants pay no registration or tuition fee and may qualify for Peace Officer Standards and
Training credit for attendance. Participants can register for the workshops by mail, fax, or telephone.
To obtain updated training schedules, preregistration forms, or additional information about these
workshops, contact the Institute for Intergovernmental Research, P.O. Box 12729, Tallahassee, FL
32317; telephone: 800-446-0912, ext. 267 or 334; fax: 850-385-4563; Internet site: http://www.iir.com/
centf/centf.htm.

6 / FBI Law Enforcement Bulletin


Weed and Seed Evaluation
Since 1991, Operation Weed and Seed has attempted to control violent crime, drug trafficking, and
drug-related crime and to provide a safe environment for residents to live, work, and raise their fami-
lies. Starting with three initial grant sites in Kansas City, Missouri; Trenton, New Jersey; and Omaha,
Nebraska, Weed and Seed has grown to include 200 sites nationwide. The program strategically links
concentrated and enhanced law enforcement efforts to identify, arrest, and prosecute violent offenders,
drug traffickers, and other criminals operating in the target areas and community policing (weeding)
with human services—including after-school, weekend, and summer youth activities; adult literacy
classes; and parental counseling—and neighborhood revitalization efforts to prevent and deter further
crime (seeding).
Recently, the National Institute of Justice (NIJ) conducted a national evaluation of the program by
selecting eight sites (Hartford, Connecticut; Manatee and Sarasota Counties, Florida; Shreveport,
Louisiana; Las Vegas, Nevada; Akron, Ohio; Pittsburgh, Pennsylvania; Salt Lake City, Utah; and
Seattle, Washington) that represented different aspects of Weed and Seed. While each site had its own
distinctive crime problems, they all shared high rates of violent crime related to drug trafficking and
drug use, and most had serious gang-related crime problems. The evaluation revealed some key
findings.
• Preexisting community features—such as the strength of the social and institutional infrastructure
(an established network of community-based organizations and community leaders), the severity of
crime problems, geographical advantages favoring economic development, and transiency of the
community population—may make the program easier or more difficult to operate effectively.
• The mix of weeding and seeding activities and the sequencing of these components—including
early seeding, sustained weeding, high-level task forces combined with community policing, and
an active prosecutorial role—represent important factors in gaining community support for the
program.
• Greater success occurred when sites concentrated their program resources on smaller population
groups, especially if they also could channel other public funds and leverage private funds.
• Active and constructive leadership of key individuals represented a less tangible ingredient in the
more successful programs.
• Implementation strategies that relied on
bottom-up, participatory decision-making Bulletin Reports, a collection of criminal justice
approaches, especially when combined studies, reports, and project findings, is compiled by
with efforts to build capacity and partner- Bunny Morris. Send your material for consideration to:
ship among local organizations, proved the FBI Law Enforcement Bulletin, Room 209, Madison
most effective. Building, FBI Academy, Quantico, VA 22135. (NOTE:
For a copy of the National Evaluation of The material in this section is intended to be strictly an
Weed and Seed (NCJ 175685) by Terence information source and should not be considered an
endorsement by the FBI for any product or service.)
Dunworth and Gregory Mills, contact the
National Criminal Justice Reference Service at
800-851-3420 or access the NIJ Web site at
http://www.ojp.usdoj.gov/nij.

December 1999 / 7
Understanding
Subjects with
Paranoid
Schizophrenia
By KRIS MOHANDIE, Ph.D.,
and JAMES E. DUFFY

T hroughout their careers, law they dislike the side effects or can- SYMPTOMS
enforcement officers may not afford the medication. Some in- A variety of symptoms charac-
encounter individuals who dividuals may deny their illness al- terize a person living with paranoid
have paranoid schizophrenia. Some together. At this point, they become schizophrenia. Generally, these
of these individuals may not have a at risk for committing violent acts, symptoms are present in individuals
home and may actually live on the which may bring them into contact who remain untreated or unrespon-
street. They may dress in layers of with law enforcement. sive to their medication. All of the
shabby clothing and have poor per- Law enforcement first respond- symptoms of paranoid schizophre-
sonal hygiene; but contrary to this ers and negotiators must understand nia cause major social or occupa-
outward appearance, many of these individuals diagnosed with para- tional dysfunction, and experts can-
people are harmless. Fortunately, noid schizophrenia by learning the not explain the symptoms by some
doctors can prescribe medication to characteristics they may exhibit. other disorder, such as drug abuse
treat most phases of schizophrenia. This understanding will help offi- or a medical condition. Individuals
However, individuals with schizo- cers respond to these individuals with schizophrenia will have two or
phrenia may refuse or ignore their and peacefully resolve conflicts more of the following characteristic
prescribed medications because with them. symptoms, each of which exists for

8 / FBI Law Enforcement Bulletin


a significant portion of time during
a 1-month period (or less if success-
fully treated):1
• delusions;
• hallucinations;
• disorganized speech;
• grossly disorganized or
catatonic behavior; and
• negative symptoms
(no emotion).
A delusion is an erroneous or
false belief that usually involves a Dr. Mohandie serves as a police Special Agent Duffy is assigned
psychologist with the Los Angeles, to the Crisis Negotiation Unit at
misinterpretation of perceptions or California, Police Department’s the FBI Academy.
experiences. The delusion may be Behavioral Science Services Unit.
somatic (“My body is rotting on the
inside”), persecutory (“They are
trying to poison me”), religious (“I
am on a mission for God”), referen- delusions generally revolve around live with schizophrenia, and about
tial (“That actor on TV was sending an organized theme. Anxiety, an- one-third of them have paranoid
me a special message”), or grandi- ger, aloofness, and argumentative- schizophrenia.5 Prevalence rates are
ose (“I am God”). Most frequently, ness are common symptoms associ- similar throughout the world, and
however, the themes are persecu- ated with this illness. Furthermore, typically, the onset occurs in the
tory, hence the descriptive label individuals often will have a supe- late teens to mid-30s, with men
“paranoid.” Delusions may range rior or patronizing manner. The per- more likely to have an earlier onset.
from the bizarre (“I was kidnapped secutory themes may predispose in- Delusions and hallucinations will
and am now being stalked by dividuals to suicidal behavior, and have content consistent with cul-
aliens”) to the merely paranoid the combination of persecutory and tural beliefs and practices of people
(“People at work are conspiring grandiose delusions with anger may from other cultures. For example, a
against me”). predispose individuals to violence.2 Russian immigrant with a mental
Hallucinations can be associ- The fact that many who have para- illness may have concerns about the
ated with any one of the five senses, noid schizophrenia have coherent KGB.
but subjects most frequently experi- thinking that accompanies consis- Evidence exists for a strong ge-
ence auditory hallucinations. That tent delusions makes them poten- netic or biological component to the
is, they hear voices, distinct from tially lethal. Although they mis- disorder because first-degree bio-
their own thoughts, that are usually perceive events, their behavior is logical relatives of individuals with
critical, demeaning, or threatening. generally organized, making them schizophronia have a 10 times
Several subtypes of schizophre- capable of significant, premedi- greater risk of developing the disor-
nia exist. The paranoid type is char- tated, goal-directed behavior.3 der than the general population. At
acterized primarily by delusions or the same time, twin and adoption
auditory hallucinations in the con- PREVALENCE, CAUSES, research studies have shown that
text of otherwise-normal cog- AND TREATMENT environmental factors also can play
nitive and emotional function- At least 1 to 2 people out of 100 a role in the development of the
ing. Compared to other forms of will be diagnosed with schizophre- disorder.6 In any event, evidence
schizophrenia, paranoid schizo- nia at some point in their lives.4 An shows that the disorder is a biologi-
phrenic thoughts are coherent, and estimated 2.5 million Americans cally based illness, and many of the

December 1999 / 9
available treatments are antipsy- firmly believed that none existed.9 violent, unpredictable, and danger-
chotic medications. These medica- However, recent research demon- ous adversaries for law enforce-
tions can cause such side effects as strates that the prevalence of self- ment. When individuals possess all
involuntary movements of the reported violence among those with of these elements, law enforcement
tongue, jaw, trunk, and extremities, schizophrenia remains 5 times faces the problem of trying to con-
which require additional prescrip- higher than those with no disorder trol a person who feels directed to
tions to control. In addition to tak- and that schizophrenia remains 3 complete a “task” and, at the same
ing this medication, people with times higher in jail and prison time, due to paranoia, has become
these disorders may need outpatient samples than in general population totally distrustful of any police
therapy or inpatient hospitali- samples.10 In particular, those who involvement.
zation, placement in group homes actively experience psychotic Those subjects who believe that
or board-and-care facilities, or re- symptoms, such as delusions and other people intend to harm them
quire institutionalization. hallucinations, are involved with may make a “preemptive strike” to
In fact, prior to the 1960s, doc- violent behavior at rates several keep themselves safe, while others
tors often institutionalized patients times higher than members of may have “command hallucina-
with schizophrenia. However, this the general population with no tions” (i.e., they hear voices) that
pattern began to reverse in the disorders.11 tell them to harm others. Further,
1970s due to the advent of antipsy- certain delusional beliefs may com-


chotic medication, changing atti- pel individuals to commit illegal
tudes of individuals toward people acts that can escalate into confron-
with mental illness, revelations tations with law enforcement.
about poor conditions at hospitals, At least 1 to 2 These subjects’ actions challenge
and concerns about costs. This pat- people out of law enforce-ment’s resourcefulness
tern accelerated in the 1980s and 100 will be to prevent acts of possible violence
continues today. 7 While many diagnosed with or long, drawn-out confrontations.
people with schizophrenia can live schizophrenia at
more normal lives in the 1990s, a Case Examples
lack of funding for community-
some point in Recently, several violent inci-
based care has led a number of these their lives. dents have occurred involving law
enforcement and individuals diag-


individuals to deteriorate and lapse
into behavior that law enforcement nosed with paranoid schizophrenia.
now must address. Experts estimate In Washington, DC, on July 24,
that more than one-half of all people If present, several factors or ac- 1998, a man killed two U.S. Capitol
with schizophrenia receive inad- tivities may elevate the risk of vio- police officers. The suspect report-
equate therapy, while fewer than 30 lence. The most common of these is edly believed that he had been
percent get appropriate medication. alcohol abuse and illicit drug use. cloned at birth, that he had invented
Some mental health experts believe Weapons possession represents an- a machine to reverse time, that the
that the burden of responsibility and other common element because CIA had been spying on him
risk is shifting to law enforcement.8 when individuals with paranoid through satellite dishes, and that
schizophrenia believe they are not President Clinton had planned the
VIOLENCE RICK safe, they are more likely to acquire Kennedy assassination out of jeal-
AMONG PEOPLE weapons to increase their sense of ousy over Marilyn Monroe.12 The
WITH SCHIZOPHRENIA power and safety. These factors, subject had numerous prior contacts
At one time, despite public combined with these individuals’ with local law enforcement and the
perception of a connection be- near-absolute distrust of everyone U.S. Secret Service prior to the kill-
tween mental disorders and vio- and their delusions and hallucina- ings and had been committed previ-
lence, social science researchers tions, can turn them into potentially ously for mental health reasons.

10 / FBI Law Enforcement Bulletin


The now-infamous Unabomber CRISIS MANAGEMENT acting. Unfortunately, all too often,
allegedly committed 16 bombings STRATEGIES when individuals call or send ob-
between May 25, 1978, and April scure complaint mail, law enforce-
24, 1995. His 17-year serial bomb- Incident Prevention/ ment may merely view them as a
ing spree left 3 people dead and 28 Early Intervention nuisance, thus missing opportuni-
others injured. He believed that the Ideally, management and inter- ties for assessment and early inter-
power of society to control the indi- vention of potentially violent citi- vention prior to the development of
vidual was expanding rapidly and zens with paranoid schizophrenia, a major problem.
that this progress, if not stopped, as well as other disorders, begin Police officers can use numer-
inevitably would lead to the extinc- with early recognition of an evolv- ous techniques and resources to as-
tion of individual liberty.13 He also ing problem. Prior to committing sess threatening and desperate
asserted that he was entitled to acts of violence, many subjects communications and behaviors. For
embark upon a bombing campaign write letters, make telephone calls, example, law enforcement and
in service of his antitechnology and use other methods to communi- mental health professionals can re-
beliefs. cate with those in the community spond as teams to evaluate and
In the fall of 1997, a middle- and law enforcement. They often intervene with citizens who have
aged woman in Roby, Illinois, barri- express concerns about hearing deteriorating conditions. Also, of-
caded herself in her residence for voices or being followed or have ficers may conduct proactive inter-
over 5 weeks while law enforce- various other delusional beliefs. In viewing of “problem” citizens in
ment officers attempted to serve a addition, other individuals—for ex- order to monitor signs of deteriora-
mental-health-commitment order. ample, family members and private tion or escalation. Law enforce-
During this period of time, she fired security employees— may bring the ment also should increase its atten-
at officers and shot a police dog. person to the attention of law en- tion to mental health needs and
She believed that her food was be- forcement because of these be- intervention during sentencing
ing poisoned, that FBI personnel haviors.15 At this point, officers can phases of criminal trials involving
were trying to rape her, and that her assess individuals for risk and di- individuals with schizophrenia, par-
family members were imposters vert them to systems that can keep ticularly if the individual will be
trying to steal her money and harm them from moving from thinking to released someday. Although police
her. After 39 days, the police took © Mark C. Ide
her into custody while she was try-
ing to disable a covert surveillance
camera. After 47 days in mental
health custody, doctors released
her, and she returned to her rural
residence.14
Delusions, hallucinations, and
general paranoia contributed in in-
fluencing the violent behavior of
these individuals. When confronted
with a person who exhibits unusual
or potentially dangerous behavior,
law enforcement officers should not
focus on criminal responsibility,
but rather on how they should re-
spond to the person to deescalate
the situation and maintain safety.

December 1999 / 11
administrators should determine the stressors, and a lack of positive Intelligence Gathering
best approach for their depart- influence or social support. Many Intelligence gathering begins
ments and communities, proactive of these individuals communicate with the initial 911 call or request/
evaluation of these situations by with law enforcement for years at a inquiry from the reporting party.
law enforcement should include relatively innocuous level, when The citizen who files a report be-
considering— suddenly—usually due to medica- cause of concerns about a subject
1) whether such individuals tion issues, situational stressors, or often will include information
are organized and coherent other factors—the level begins to about possible paranoid schizo-
versus disorganized and unable escalate. phrenia. The person taking the ini-
to engage in goal-directed Still, a distinct difference exists tial report should gather as much
behaviors; between posing a threat and making information as possible, particu-
a threat. Researchers have noted larly about mental health problems,
2) whether such individuals that some who make threats do not and immediately report it to the re-
stay fixed on one or several pose threats, and some who pose sponding officers. Additionally,
major themes or explanations threats do not make threats.17 None- dispatchers should provide officers
for their concerns that involve theless, law enforcement agencies with the information they need to
blame for significant problems
avoid fulfilling any delusions or


in their lives versus not having
hallucinations. Also, police should
“figured it out” yet;
seek all available information from
3) whether such individuals the individual’s mental health pro-
focus on a specific person or Police officers can use fessional, who may furnish treat-
several persons versus not numerous techniques ment history, medication compli-
having determined who or and resources to ance, and past propensity for
what is behind it all; assess threatening and violence.
4) whether such individuals desperate Frequently, escalating events
have an action imperative communications and (e.g., telephone calls) may have pre-
where they believe that they behaviors. ceded the current law enforcement
have exhausted the legitimate contact. Officers should try to un-
derstand this history as fully as pos-


avenues of addressing their
issues and now believe that sible and access as much relevant
they have to take matters into data as possible, particularly about
their own hands; and should have a mechanism in place past communications. Police should
for monitoring these individuals use a mental health consultant, if
5) whether a time imperative prior to an incident. For example, available, to assist in the data-gath-
exists, and such individuals the Los Angeles Police Department ering and interpretation process. In
communicate a sense of has a Threat Management Unit and hostage incidents, search warrants
urgency or desperation about Mental Evaluation Unit that per- to the subject’s residence or other
the need for such actions.16 form these functions; the FBI has frequented locations may yield ma-
Individuals who demonstrate the Critical Incident Response terials (e.g., diaries or letters) that
these factors elevate law enforce- Group; and the U.S. Secret Service can help others understand the cur-
ment’s degree of concern and need uses its Intelligence Division for rent situation.
to intervene. These factors remain such monitoring. Smaller agencies
particularly important if the subject also can apply and adapt the models Verbal and Nonverbal Strategies
has a history of violence, delusions used by these larger organizations First responders or negotiators
and hallucinations, active substance to serve this monitoring and early- can use a variety of verbal and non-
abuse, weapons access, situational intervention function. verbal strategies when engaging

12 / FBI Law Enforcement Bulletin


Negotiation/First Responder Guidelines
1. From the beginning to the end of the contact, 5. Use suggestibility statements and empathy to
strive to show respect and dignity through attempt a behavioral change.
verbal comments and physical actions. 6. Allow the subject to vent frustrations.
2. Make a noticeable attempt to understand the 7. Do not crowd or violate the subject’s per-
context of the subject’s comments. sonal body space, which may encompass an
3. Avoid arguing about the subject’s delusions area as large as a residence or dwelling.
while attempting to develop reality-based 8. If rapport appears to be developing, use terms
issues. “us” and “we” instead of “you” and “me.”
4. Use active listening skills such as paraphras- 9. Fulfill promises made to the subject.
ing, emotion labeling, and “I” messages.

subjects with paranoid schizophre- hallucinations may seem, officers receive do not exist because the in-
nia. First, and most important, offi- must maintain their professional de- dividual truly hears and believes
cers should show respect and inter- meanor and not ridicule or criticize these delusions and hallucinations.
est in subjects and their concerns. subjects in any manner. Subjects By paying attention to these con-
The initial verbal contact that offi- believe their issues are serious, and cerns, first responders and negotia-
cers make during a crisis or hostage given their paranoia, they may not tors work to establish credibility
situation may set the tone for the perceive laughter very kindly but with the subject, showing that they
remainder of the contact, prove in- rather as demeaning. Officers can are different from others whom the
strumental in determining the out- give a response that shows interest subject previously perceived as
come of the situation, and dictate and concern by law enforcement, threatening or humiliating.
the tenor of all future encounters. at the same time projecting non- In addition, negotiators have
Officers should contemplate aggressive, nonconfrontational found that using third-party inter-
how the subject may perceive their communication. For example, of- mediaries to negotiate with suspects
comments. Nonconfrontational ficers can say, “I understand what may have a positive impact upon
statements such as “Hello, how are you are saying, but I do not hear many incidents.18 However, due to
you? I am Officer Smith” are nei- those voices. Can you tell me more past negative interactions with the
ther alarming nor threatening. about them?” Individuals with para- subject and the possibility that the
These types of comments, spoken in noid schizophrenia trust very few family member or previous mental
a calm and even tone, project a people, if any. They do not under- health provider may contribute to
sense of respect and dignity. In cri- stand why others cannot see, hear, any existing delusions, it remains
sis situations, officers’ initial com- or feel what they do. critical that officers assess the
ments will provide the cornerstone Friends and family may have subject’s perceptions of any third
for the success of the entire opera- told the person that the delusions parties before allowing them to be-
tion and establish the foundation for and hallucinations they sense do not come involved in the process.
all future contacts. exist and may have even ridiculed Experts disagree on the useful-
Next, officers should take an them. Therefore, officers can estab- ness of talking with subjects about
unemotional, logical, and factual lish a rapport with subjects by the content of their delusions, but
approach, seeking to understand the showing a willingness to under- officers must remember never to
important issues that subjects are stand and help. Officers should not argue with them. Some experts
trying to communicate. No matter tell individuals that the “mission” believe that law enforcement offi-
how bizarre the delusions or they are on or the “messages” they cers should understand subjects’

December 1999 / 13
delusions to avoid actions that may Direct attempts by officers to fear, officers can distract subjects to
fulfill these delusional beliefs; force trust upon individuals with focus their attention on other issues.
some believe that officers should paranoid schizophrenia will only In certain situations, it may help to
immediately move to reality-based reconfirm the subjects’ worst suspi- change the topic to something unre-
issues. In either case, sometimes cions about officers—that they can- lated such as the subjects’ hunger or
subjects will need to talk about their not be trusted or intend to harm or personal needs. As long as subjects
delusions, and first responders and humiliate them. Experienced nego- do not perceive it as an uncaring
negotiators should listen to their ex- tiators have learned that allowing shift, such a tactic may deescalate a
planations of the world and respond subjects to vent frustrations at law particularly inflammatory course of
sincerely. In doing so, officers enforcement reduces their anger, dialogue. Interestingly, and poten-
should not say that they see or be- fear, and energy. A positive aspect tially important in a negotiation
lieve the things that subjects do, but of this type of ventilation comes situation, many people with para-
they can say that they believe the from the subject’s concentration on noid schizophrenia have a nicotine
feelings and sensations. For ex- law enforcement, which redirects dependence (e.g., cigarette smok-
ample, an honest, yet productive, anger from any hostages, provides a ing), and nicotine dependence may
response from law enforcement verbal alternative to more violence, reduce medication side effects.
might be “I believe you are scared The physical boundaries of the
and not sure whom to trust. I can tell encounter also play a crucial role in


you that I haven’t seen them, but it such situations. Subjects may per-
is clear that you believe you have. ceive such things as body space, eye
That’s important to me.” A re- First responders or contact, and the mannerisms of the
sponse toward more reality-based negotiators can use responding officer or negotiator as
issues might be, “If you kill yourself potentially threatening. Officers
for the cause, I’m concerned about
a variety of verbal should remember that subjects may
who will look after your children.” and nonverbal require more physical distance in
Experienced negotiators have strategies when interactions in order to feel safe.
learned that they may become tar- engaging subjects Further, too much intense eye con-
gets of verbal abuse when dealing with paranoid tact in face-to-face scenarios some-
with subjects with paranoid schizo- schizophrenia. times evokes some fear of aggres-
phrenia. In fact, these subjects often sion or mind control.


express a fair amount of rejection, Similarly, movements by indi-
anger, and fear to first responders or vidual officers or the tactical team
negotiators. First-responding offi- will be filtered by subjects through
cers should allow this ventilation, and may distract the subject from the emotion of fear and anticipated
paraphrase the subject’s concerns devoting additional time and energy aggression, and subjects may feel a
and feelings, and reassure the sub- to fortify any stronghold or dwell- need to act first in order to keep
ject that they (the officers) are dif- ing. All of the subjects’ comments themselves safe. Subjects may per-
ferent from others. Officers may can provide valuable information ceive everything an officer does as a
precede such reassurance by sug- for negotiators to keep the subjects threat. Therefore, without compro-
gestibility statements that confirm talking rather than hurting others. mising the operation, officers
the officer’s sincerity, such as “You Additionally, such delay tactics should tell subjects what they plan
have had every reason to not believe give the crisis management team to do before taking any action.
what I am going to tell you now….” crucial time to develop strategy, ob- If successful, these interactions
or “It makes sense that you would tain evidence, and plan and rehearse lay the foundation for a relationship
feel that way; maybe later you tactical options. in which the subject experiences a
might decide that I am worthy of However, if ventilation appears sense of security and safety. It may
some of your trust.” to escalate the subjects’ anger or take a long time for officers to build

14 / FBI Law Enforcement Bulletin


rapport with individuals who do not number of barricade situations in- Many individuals with para-
trust them and who have concern volving subjects with paranoid noid schizophrenia also form strong
for their own well-being; once of- schizophrenia, as well as other attachments to particular posses-
ficers establish rapport, however, criminals, who seek refuge in their sions and to their pets. If tactical
they can shift some of the focus to residences and refuse to leave. officers kill pets or destroy or dam-
problem solving. As officers ex- Their homes may provide a place of age certain possessions, they may
plore the range of alternatives to solace, holding fond memories. As seriously undermine any potential
resolve the situation, they must a result, when officers plan to arrest for negotiators to develop rapport
never doubt subjects’ intelligence, subjects at their residences, the like- with the subject. Law enforcement
even when the subjects present lihood of violence may increase. should take such actions only when
some rather bizarre scenarios and Close, threatening containment also absolutely necessary. Excessive
concerns. When discussing options may prove counterproductive. noise, tactical movement, and other
that might help to resolve subjects’ law enforcement actions will be
concerns, officers always should © Don Ennis magnified to subjects with paranoid
avoid insulting their intelligence.19 schizophrenia, and crisis negotia-
After resolving the incident, of- tion teams should limit their use of
ficers must practice the basic nego- such tactics to avoid exacerbating
tiation concepts—fulfill promises subjects’ fears and anxieties.
as much as possible and continue to The subject’s shame at being
build rapport after arrest or surren- apprehended in front of an audience
der. Officers must recognize that likewise can inflame a situation.
they may deal again with subjects Officers should consider alternative
who get released. Officers should plans devised to lure unsuspecting
continue to show respect, interest, suspects from their residences prior
and thoughtfulness in their interac- to an arrest attempt. For example, if
tions with subjects. In addition, they officers disable a heater or air con-
should share information with hos- ditioner, subjects may let their
pitals, doctors, and family members guard down while trying to fix the
to expedite social support and assis- problem. Such a ruse may reduce
tance. Oftentimes after an incident, the likelihood of officers’ being
another patrol unit takes the indi- fired upon.
vidual for arrest processing, and At times, police may even con-
critical information does not get In some cases, subjects may in- sider merely walking away from a
passed to those who may play an crease their personal body space to situation, after determining that the
integral role in preventing a future include their residences. For ex- reason for law enforcement in-
incident. Effective case manage- ample, when officers tried to serve a volvement is not worth the deploy-
ment and prevention begins anew, court order to the woman at her ment of significant resources.20 Of-
and law enforcement officers must home in Roby, Illinois, she met ten, an agency may deploy some
recognize the importance of their them with a shotgun and refused to officers nearby to take subjects into
roles at this stage. surrender. As the situation contin- custody when they leave their safe
ued, her body space increased to the haven.
Physical Tactics/Alternative approximate dimensions of her resi-
Strategy Considerations dence. When tactical officers at- INCIDENT ASSESSMENT
The use of physical tactics to tempted to peer into windows and How law enforcement ad-
resolve incidents raises important to open doors, she fired on them, dresses subjects with paranoid
concerns. First, law enforcement believing they were invading her schizophrenia, as first responders or
has encountered an increasing personal space. negotiators, may dictate a peaceful

December 1999 / 15
or violent outcome. While assess- negotiators and first responders behavior that is more chaotic, unpredictable,
ment and understanding of one may spend many hours talking to and impulsive, as a function of a clouded and
confused thought process.
factor—suspect type (depressed, individuals with paranoid schizo- 4
Supra note 1.
personality disordered, or psy- phrenia and successfully change 5
M. Grunwald and S.G. Boodman, “Weston
chotic)—remains important, four their behavior. The ability to estab- Case Fell Through Cracks; Violence by Mental
other factors play a significant role lish rapport, show genuine interest Patients Hard to Predict, Experts Say,” The
Washington Post, July 28, 1998, A1.
in the outcome of these events: and concern for the subject, and 6
Supra note 1, 283.
• the context of the event maintain a credible posture has en- 7
Supra note 5.
(spontaneous, deliberate, or abled many negotiators and first re- 8
“Capitol Case Puts Family Nightmares in
sponders to orchestrate peaceful Spotlight,” in Associated Press, August 5,
anticipated criminal event);21 1998.
resolutions to potentially violent 9
J. Monahan, “Mental Disorder and Violent
• expressive versus instrumental
Behavior: Perceptions and Evidence,”
demands or agenda (subject in American Psychologist 47 (1992): 511-521.


crisis and needs to vent 10
Ibid.
concerns versus more concrete 11
Supra note 1.
12
demands such as social or Supra note 5.
political change); Officers should 13
S. Johnson, “Forensic Evaluation of
Theodore John Kaczynski” (unpublished
• hostage presence and type; consider alternative forensic report, January 16, 1998).
and plans devised to 14
M. Campion and D. Brown, “The Roby,
Illinois, Incident: The Longest Standoff in
• law enforcement’s crisis lure unsuspecting American History,” paper presented at the
management actions.22 suspects from their International Association of Chiefs of Police
Annual Conference, Salt Lake City, Utah,
Ideally, careful consideration residences prior to October 17, 1998.
of the first four factors should an arrest attempt. 15
R.A. Fein and B. Vossekuil, Protective
appropriately dictate law enforce- Intelligence and Threat Assessment Investiga-


tions: A Guide for State and Local Law
ment’s crisis management actions Enforcement Officials (Washington, DC: U.S.
in order to ensure optimal success. Department of Justice, 1998).
16
C. Hatcher, “A Method for Assessing
CONCLUSION Threating Communications” (unpublished
situations. Anytime a peaceful reso- manuscript, 1998).
Experience has shown that of- lution results, a double victory oc- 17
Supra note 14.
ficers who receive negotiation curs for law enforcement—the situ- 18
“The Police Seminar on Crisis Negotia-
training handle individuals with ation ends without violence, and tions,” seminar presented by the FBI, Burbank,
emotional problems better than they CA, October 5-8, 1998.
tactical team members do not need 19
M.J. McMains and W.C. Mullins, Crisis
did before training, even when the to take any unnecessary action or Negotiations: Managing Critical Incidents and
initial contact is a standard call for place themselves in harm’s way Situations in Law Enforcement and Corrections
service. Officers have learned spe- against an unpredictable, violent (Cincinnati, OH: Anderson, 1996).
20
cific guidelines for communicating M.S. Miron and A.P. Goldstein, Hostage
person. (New York: Pergamon, 1979).
with and managing these people, as 21
F. Lanceley, “Criminal Contexts of
well as crisis intervention skills that Hostage Incidents” (unpublished manuscript,
prove helpful in resolving conflict Endnotes 1997).
1
when dealing with those with para- American Psychiatric Association, 22
K. Mohandie and M. Albanese,
Diagnostic and Statistical Manual of Mental “Advanced Crisis Negotiations” (unpublished
noid schizophrenia. Disorders (4th ed.): DSM-IV (Washington, DC: manuscript, 1997).
Trained negotiators realize that American Psychiatric Press, 1994), 286.
trying to resolve any problem or 2

3
Ibid., 287.
crisis too quickly will have nega- Organized behavior refers to behavior that
is purposeful and based upon logical and sound
tive results. Through the use of thought processes, compared to disorganized
crisis intervention techniques, behavior where an individual engages in

16 / FBI Law Enforcement Bulletin


Book Review

Official Negligence: How Rodney King the use of choke holds in Los Angeles. The
and the Riots Changed Los Angeles and the remaining choices—verbal commands, the
LAPD by Lou Cannon, published by Times “swarm” technique of several officers wrestling
Books, Random House, Inc., New York, New the suspect to the ground, the PR-24 metal side
York, 1997. handle baton and the Taser—all proved ineffec-
Official Negligence: How Rodney King and tive in subduing King. Yet, many people viewed
the Riots Changed Los Angeles and the LAPD the resulting video of all of the techniques used
is a book that every police executive and law on King as strictly another case of police
enforcement manager should read. This book brutality.
does not just rehash the incident that occurred The author illustrates each chapter as a
in Los Angeles, California, on March 3, 1991. progression of similar policy decisions that
Instead, the author presents a story of political influenced proceeding events. He points out
influences and policy decisions that directly flaws in the leadership of Mayor Tom Bradley
impacted the incident and the rioting in the and Police Chief Darryl Gates as a major reason
aftermath of the acquittal verdicts of the in- for lack of direction provided to line officers.
volved police officers. Mayor Bradley and Chief Gates gave no fore-
Official Negligence takes a critical look at sight to probable outcomes of public unrest,
current law enforcement issues, such as police despite pleas from police field supervisors and
management, use-of-force considerations, community leaders. A lack of appropriate
community policing, tactical resource deploy- community policing and community relations
ment, leadership, media influence, and relation- efforts accounted for smoldering, antipolice
ships with city government. The title of the neighborhoods that erupted into rioting immedi-
book refers to a quote from Ira Salzman, Ser- ately following the 1992 Simi Valley acquittals.
geant Stacey Koon’s attorney, who said at The author effectively presents cause and effect
Koon’s 1993 sentencing, “It was the city that comparisons that led to the resulting rioting that
failed.... It was police management, past and accounted for 54 deaths, 2,328 injuries, and
present that has failed.... There simply has to be $900 million in property losses to Los Angeles.
some allowance for the official negligence of the Official Negligence is about Los Angeles
city that allowed this to take place and that will and the specific events that led to the tragedy
take place again.” Salzman referred, in part, to that occurred there. Yet, any law enforcement
policy decisions that limited the LAPD’s use-of- manager can learn from the pitfalls illustrated in
force options in dealing with Rodney King when the book and make comparisons to their own
they encountered him at the end of a high-speed jurisdiction and choose to do a self-assessment
traffic pursuit. in risk management.
Prior to the Rodney King incident, the Reviewed by
LAPD was criticized for deaths resulting from James I. Dudley
choke holds that officers used as one of their Captain
force options. As a result of several incidents San Francisco Police Department
and lawsuit settlements, the department banned San Francisco, California

December 1999 / 17
Vehicle Stops Involving
Extremist Group Members
By JAMES KOBOLT, M.P.A.
© Mark C. Ide

E xperienced police officers members of the neo-Nazi group if not prevent, a deadly encounter
understand that there is no Aryan Nations and white suprema- with these dangerous individuals.
such thing as a routine traf- cist religion Christian Identity,
fic stop. Yet, while the field-level opened fire on Ohio law enforce- RECOGNIZING THE
investigation of an automobile and ment officers after being pulled SIGNS OF EXTREMISM
its occupants always has presented over for driving with expired li- Members of extremist groups
a tactical risk, over the last decade, cense plates.1 Sadly, most officers may reveal their affiliations in a
stopping and checking vehicles for can recall a traffic stop in their state number of ways.2 First, the vehicles
suspected criminal activity have that involved a member of an ex- they drive often provide clues that
taken on another element of danger. tremist group and ended in a sur- can help officers prepare for poten-
Increasingly, officers making traf- prise fight for survival. Accord- tial danger before making a stop.
fic stops have become involved in ingly, officers must remain alert to Specifically, extremists’ vehicles
deadly encounters with heavily the telltale signs of extremist group may sport bumper stickers with an-
armed extremists. involvement and understand the tigovernment or pro-gun senti-
In a well-publicized incident risk these individuals present. In ad- ments; display handmade license
that occurred in February 1997, dition, officers may need to rethink plates, plates from jurisdictions that
brothers Chevie and Cheyne Kehoe, their tactical approaches to survive, do not exist, or no plates at all; or fit

18 / FBI Law Enforcement Bulletin


the profile of vehicles driven by
known extremist group members
in the area. Additionally, officers
may have seen the vehicle or its
occupants at locations where ex-
“ Officers never
should argue
political
tremist groups assemble or may philosophy
know that the subjects harbor with extremist
extremist beliefs. group members....
The occupants of the vehicle


may show other signs of extremist
group involvement. Drivers who
hold antigovernment beliefs may
refuse to carry driver’s licenses, ve- Mr. Kobolt serves as the director of the Institute for Public Safety at
hicle registration, proof of insur- Lake Superior State University in Sault Sainte Marie, Michigan.
ance, or other forms of identifica-
tion. Instead, they may present
handmade licenses, a copy of the
Constitution, a Bible, or political from their vehicles, and fired on notebooks, radio microphones, and
literature. In addition, a records officers. Suddenly, officers find the like.
check may reveal minor outstand- themselves in a “kill zone” before Trainers usually emphasize
ing warrants. Extremists often fail they even step from the patrol car. moving at right angles to exit a kill
to satisfy violations of motor ve- What can officers do to increase zone. However, due to the penetra-
hicle laws, such as registration or their odds of survival during such tion capability of most high-impact
license requirements, because they an ambush? weapons, the right-angle movement
do not feel bound by such laws, and may leave officers under fire with
any statements to this effect that Planning for Survival only a driver or passenger-side door
drivers make should send a strong Survival options include all of for cover. Therefore, officers
signal to officers. Finally, because the safety tactics learned in the should consider using a gradual
of their knowledge and experience, academy with one significant dif- right-angle evacuation, keeping the
officers may be able to recognize ference. Current vehicle construc- general area of the engine between
other indicators of extremist behav- tion almost precludes the use of a themselves and the attack. After
ior unique to their jurisdictions. vehicle for reliable personal cover. evacuating and taking cover, offi-
Once officers decide a subject Even the area around the engine cers can stop and initiate critical
may hold extremist beliefs, they provides only limited cover. As a incident procedures. If no reliable
should develop a plan of action. In result, evacuation may represent the cover exists, officers should evacu-
fact, preparation remains the key to preferred solution to a sudden direct ate at least 200-300 meters (ap-
dealing with extremists. attack with heavy weapons. proximately 600-900 feet), the out-
If attacked while seated in the side effective range of most
PREPARING FOR A STOP patrol vehicle, officers should seek high-impact weapons.
Because any traffic stop can personal cover behind the engine Traditional vehicle-stop train-
turn deadly, officers usually learn at area of the vehicle while evacuating ing focuses on what stands in front
the academy to stop vehicles in lo- the kill zone using the most direct of and, sometimes, to the sides of
cations that provide adequate light- route. Usually this means the of- the officer. A frontal attack from
ing and personal cover. Yet, in pre- ficer quickly must place the patrol sophisticated high-impact weapons
vious encounters with law enforce- vehicle in reverse.3 To do so, the means expanding the area officers
ment, extremist group members officer’s hands must remain free of must consider when preparing to
have stopped abruptly, jumped all obstructions, including pens, make a vehicle stop. Because

December 1999 / 19
evacuation may represent the only pad they use to record dispatched represents a good start, but other
viable survival option, officers must information, then putting their pens tactical options exist.
remain aware of what lies behind back in their pockets. Then, if an A videotape review of extrem-
the police vehicle at the time the attack leaves an officer unable to ist group members recently attack-
stop occurs. For example, vehicles testify, the evidence the officer ing officers indicates that some sus-
approaching from the rear could leaves behind presents a strong case pects struggle with officers during
block the officer’s escape route. If to a jury. attempts to establish initial control.
so, the officer may be able to wait Finally, before officers stop a After breaking away from officers,
until the vehicles pass to make the vehicle occupied by two or more many subjects run back to their ve-
stop. individuals for suspected criminal hicles to retrieve weapons. Alter-
Keeping an evacuation route activity, they always should request nately, a passenger left in the ve-
open presents a deployment and po- backup. Waiting for a cover officer hicle engages officers when they
sitioning dilemma for the cover of- proves particularly important when have their hands full with the driver.
ficer, as well as the contact officer. dealing with extremist group mem- In either scenario, officers must
If the cover officer parks directly bers, who often travel in convoys. consider the interior of the vehicle
behind the contact officer, the con- “hot” from a tactical perspective


tact officer may get trapped be- because they have not yet cleared it
tween the suspect and the cover of- for weapons.
ficer and be unable to escape an ...evacuation may To clear the vehicle, the officer
attack. The side-by-side positioning first should remove the driver.
of contact and cover vehicles seems
represent the preferred While exiting, the driver should
to offer the best opportunity for solution to a sudden place the keys on the roof of the
quick exit of a kill zone for both direct attack with vehicle, which allows the officer to
officers. heavy weapons. easily take control of the keys and
Officers must consider the discreetly secure the driver’s side


subject’s escape route in addition to door. This serves to disrupt any
their own. Selecting the proper lo- spur-of-the-moment plan of action
cation to make a stop can limit a The National Law Enforcement the driver may have, such as return-
subject’s ability to flee. Memorial in Washington, DC, is ing to the vehicle to flee or attack
marked with the names of many of- the officer.
Communicating ficers who failed to call for assis- When faced with multiple sub-
Safely and Effectively tance when they needed it. No traf- jects, the contact officer should not
One of the most basic rules gov- fic stop is worth dying for, and if approach the vehicle without a
erning traffic stops also holds true necessary, officers should merely cover officer. Both officers should
for encounters with extremists. Of- follow vehicles until backup be- approach from their respective
ficers always should notify the dis- comes available. sides of the vehicle. The cover of-
patcher before exiting their ve- ficer should have all remaining oc-
hicles. In fact, they should complete MAKING THE STOP cupants exit through the passenger
all radio transmissions prior to sig- side, then discreetly lock the pas-
naling for a vehicle to stop. Doing Approaching and senger doors. Locking the doors
so allows officers to focus on the Removing Occupants helps secure the interior of the ve-
subject. It also leaves both hands During training, many police hicle until the officers are prepared
free to shift and control the vehicle officers learn that they should care- to conduct a limited search for
during an emergency evacuation. fully approach a stopped vehicle on weapons or inventory the contents
Officers also should get into the the driver’s side, paying attention to before towing.
habit of writing the license number the trunk and occupant areas, while Separating suspects—particu-
of the vehicles they stop on the keeping the occupants inside. This larly suspected extremist group

20 / FBI Law Enforcement Bulletin


members—from their vehicles frisking or searching them. Officers contact officer should search the in-
when conducting a field-level in- operating alone with a single sus- terior of the vehicle, while the cover
vestigation into criminal activity re- pect should not check the interior of officer keeps the occupants in a po-
mains critical. Escorting subjects to the suspect vehicle until they have sition of tactical disadvantage on
the rear quarter panel on the secured the subject. Securing may the nonroadway side of the patrol
nonroadway side of the patrol car include placing the subject in the vehicle. Both officers must main-
puts distance between suspects and back seat of a police vehicle with a tain good verbal and nonverbal
their vehicles. Doing so also re- cage, handcuffing the subject to a communication throughout the en-
duces the risk of officers’ or sus- fixed object safely out of harm’s counter. To do so, they should keep
pects’ falling onto the hot car hood way, or, if departmental policy pro- each other in sight at all times.
during a struggle. Additionally, it hibits either of these, leaving the
Interrogating Appropriately
gives the officer easy access to the subject under the control of another
patrol vehicle’s prisoner cage in the officer. If none of these options Interrogation in a field-level in-
event of an arrest. proves possible, then officers must terview involves more than asking
weigh the safety implications of questions; it also means establish-
Conducting Searches checking the interior of the vehicle ing and maintaining control while
The legal standards of frisk, from a dangerously vulnerable posi- working in a street environment.
search, and seizure remain the same tion. This may sound extreme, but When dealing with the public, of-
regardless of the subject.4 If suffi- officers who attempt to check the ficers work through three primary
cient legal grounds exist to frisk or interior of the vehicle while the sub- levels of control:
search the subject, officers should ject remains unsecured give the • No control—the officer has
do so before performing any other subject a tactical advantage and put no control over the subject’s
task, including searching the inte- themselves at risk. movements or the subject’s
rior of the vehicle. Officers who Searching a vehicle with mul- environment;
suspect subjects may be armed tiple occupants requires the use of • Stabilized—the officer has
should handcuff them before contact and cover officers. The stopped the subject’s actions

Signs of Possible Extremist Involvement

• Vehicle displays bumper stickers with • Driver possesses homemade driver’s license
antigovernment or pro-gun sentiments • Driver has no license, vehicle registration,
(e.g., “Know Your Enemies: They Are proof of insurance, or other identification
Your Leaders” or “Joe McCarthy Was
Right”) • Driver hands officer copy of Constitution,
Bible, or political materials
• License plates are missing, handmade (look
crude or professional), or from jurisdictions • Driver refuses to satisfy minor outstanding
that do not exist (e.g., British West Indies, warrants due to antigovernment beliefs
Republic of Texas, Kingdom of Heaven) • Driver associates with known extremists

Source: Adapted from Mark Pitcavage, “Flashpoint America: Surviving a Traffic Stop Confrontation with an
Anti-Government Extremist,” The Militia Watchdog, April 1998; available from http://www.militia-watchdog.org/
trafstop.htm; accessed October 27, 1998.

December 1999 / 21
(usually with verbal com- facing the patrol vehicle, sitting dispositions: the subject is either
mands) but does not control with legs crossed and hands inter- questioned and released or arrested.
the subject’s ability to locked on the head, or prone on the After releasing subjects, officers
reinitiate hostile actions or has ground with arms extended palms should keep them under observa-
not cleared the subject’s up), preferably at a distance far tion and remain on guard until the
environment of weapons; or enough to keep them from over- subjects have driven away. When
• Under control—the subject hearing the details of the interroga- officers make an arrest, they should
presents very little threat or tion. Once interrogated, subjects handcuff the subjects’ hands behind
the officer has controlled the should be returned to the cover their backs, not in front. The pur-
subject’s ability to initiate officer’s control. Both officers pose of handcuffs remains to con-
hostile actions, and the officer should account for the subjects’ trol the subject’s hands. With the
has cleared the subject’s hands at all times. hands cuffed in front, little control
environment of weapons. exists, and worse, the subject now
has a dangerous weapon to use


Officers have used a variety of against the officer. The risk a mem-
tactics during field investigations to ber of an extremist group poses to
control individuals suspected of ...preparation officers certainly merits using
criminal activity. Experience with remains the key proper handcuffing techniques.
street gang members has helped ur-
ban officers develop expertise in or-
to dealing with TRAINING FOR EXTREMISM
dering subjects into positions of extremists. Extremist group members often


disadvantage. Because extremist train regularly for confrontations
group members pose a similar with law enforcement, and officers
threat to rural officers that street should do no less. Appropriate
gang members present to urban of- Officers never should argue po- training includes developing a
ficers, rural officers should practice litical philosophy with extremist planned response, working through
and use similar verbal control and group members, who may use this the plan in a practical, hands-on set-
positioning once they have removed as a tactic to divert attention away ting to find out what works and
subjects from their vehicles. All of- from why they actually were what does not, then periodically
ficers should conduct field-level in- stopped. In addition, a heated argu- practicing the plan. Doing so gives
terrogations from a strong field in- ment may keep officers from focus- officers the edge in encounters with
terview, or “power,” stance. ing on safety issues. Officers should possible extremists.
Contact officers usually con- accept any literature subjects offer
duct interrogations and should do so with no comment other than a thank CONCLUSION
from the nonroadway side of the you. If subjects protest being Vehicle stops involving mem-
rear quarter panel of the patrol ve- stopped or ticketed, officers may bers of extremist groups can esca-
hicle, unless other environmental find that the response “I’m just do- late quickly into critical incidents
conditions prove safer. When inter- ing my job” helps to humanize them for officers. All of the rules that
rogating multiple subjects, contact and defuse tension. In addition, lis- govern traffic stops apply but prove
officers should direct one subject tening without comment to sub- particularly important when ex-
at a time to the rear quarter panel jects’ political agendas may allow tremists may be involved. Prior to
position. In order to maintain them to vent their anger in an appro- making a stop, officers must devise
undistracted observation and con- priate and safe manner.5 a plan of action that includes select-
trol, cover officers should keep the ing a location that provides personal
remaining subjects on the nonroad- COMPLETING THE STOP cover and an evacuation route. They
way side of the vehicle in a position Generally, a field-level inves- must approach vehicles, remove the
of disadvantage (e.g., standing tigation results in two possible occupants, conduct appropriate

22 / FBI Law Enforcement Bulletin


searches, interrogate subjects, and America’s citizens while keeping 3
Officers under attack may use their patrol
cars as weapons and might consider putting the
end encounters using well-accepted themselves safe.
car in drive instead of reverse. Departments
and well-rehearsed procedures that should determine policy and provide adequate
maximize officer safety. Endnotes training before allowing officers to use this
1
The U.S. Constitution gives Mark Pitcavage, “Shootout in Ohio: A tactical maneuver.
Case Study of the Patriot Movement and Traffic 4
The legal grounds for a frisk are reason-
citizens the right to express antigov- Stops,” The Militia Watchdog, March 5, 1997;
able suspicion that the subject is involved in
ernment opinions, yet some indi- available from http://www.militia- criminal activity and that the subject is armed
viduals carry their views to the ex- watchdog.org/shootout.htm; accessed with a weapon. Probable cause represents the
treme. In doing so, they put the lives December
2
3, 1998. standard for a search, which usually is
For a comprehensive list of the signs of conducted incident to an arrest or with a
of law enforcement officers and in- possible extremist involvement, see Mark
warrant. If an officer has reasonable suspicion
nocent citizens at risk. When offic- Pitcavage, “Flashpoint America: Surviving a that the occupants of a vehicle are involved in
ers recognize the signs of extremist Traffic Stop Confrontation with an Anti- criminal activity and may have a weapon in the
involvement and know how to Government Extremist,” The Militia Watchdog, vehicle, then the officer may conduct a limited
handle roadside encounters, they April 1998; available from http://www.militia-
watchdog.org/trafstop.htm; accessed October
search of the vehicle’s interior. See Michigan v.
Long, 463 U.S. 1032 (1983).
uphold the Constitution for all of 27, 1998. 5
Supra note 2.

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December 1999 / 23
FBI Leadership
Fellows Program
The FBI, in cooperation with the FBI National Academy Associates, the National Executive
Institute Associates, the Law Enforcement Executive Development Associates, the Major City Chiefs
of Police, and the Major County Sheriffs’Association, announces the creation of the FBI Leadership
Fellows Program. The year-long program, conducted under the auspices of the FBI Academy’s
Leadership and Management Science Unit, is designed to enhance the leadership skills of future law
enforcement leaders.
The program is designed for sworn officers currently serving in command positions within their
departments who can satisfy the criteria set out below. Additional information is contained in the
application package.
The candidates must—
• be sworn officers currently serving in a command capacity for a full-service, duly constituted
law enforcement agency;
• hold a bachelor’s degree (advanced degree preferred);
• be available to serve as a fellow for 12 months;
• be available to serve in residence at the FBI Academy for at least 6 continuous months within
the fellowship year; and
• come highly recommended by their agency’s chief executive, who must be an active member in
one of the five collaborating associations.
Fellows will be expected to independently, or in cooperation with other fellows and FBI Academy
faculty—
• teach classes;
• conduct research;
• manage projects;
• coordinate programs;
• facilitate meetings;
• write publishable articles or documents;
• establish professional networks; and
• attend professional conferences.
The FBI will provide transportation to and from the Academy, as well as lodging, meals, office
space, equipment, and administrative support during the residential phase of the program. The FBI
also will pay for any professional travel conducted during the fellowship year.
The FBI will award 5 to 10 fellowships each year. Selection will be based on a comparative
analysis of the credentials of all applicants. Interested candidates may obtain an application from
the Leadership and Management Science Unit, Attn: Leadership Fellows Program, FBI Academy,
Quantico, VA 22135.

24 / FBI Law Enforcement Bulletin


1999 Subject Index
BOOK REVIEWS Stress Management in Law
Crime in the Digital Age: Enforcement, reviewed by
Controlling Telecommunica- Vincent J. McNally, Novem-
tions and Cyberspace Illegali- ber, p. 25.
ties, reviewed by Marcus C. Teaching Criminal Justice
Thomas, July, p. 15. Ethics: Strategic Issues,
Business and Crime Prevention, reviewed by Frank L. Perry,
reviewed by Kenneth Sissom, June, p. 16.
August, p. 25. When Good Kids Kill, reviewed
The Killers Among Us: An by Larry R. Moore, Septem-
Examination of Serial Murder ber, p. 27.
and Its Investigation, reviewed
by Douglas L. Yearwood, COOPERATION
February, p. 19. “Building International Cases:
The Language of Confession, Tools for Successful Investiga-
Interrogation, and Deception, tions,” Stephen P. Cutler,
reviewed by Craig Meyer, December, p. 1.
January, p. 15. “The Fugitive Task Force: An “Blind Reporting of Sexual
Alternative Organizational Violence,” Sabrina Garcia and
The New Ethnic Mobs: The
Model,” Milan L. Buhler, Margaret Henderson, June,
Changing Face of Organized
April, p. 1. p. 12.
Crime in America, reviewed
by Norman C. Couns, April, “Sweden’s Response to Domes-
p. 17. CRIME PROBLEMS tic Violence,” Lars Nylén and
“Law Enforcement and the Gun Heimer, November, p. 19.
Official Negligence: How
Rodney King and the Riots Millennialist Vision: A
DRUGS
Changed Los Angeles and the Behavioral Approach,” Carl J.
LAPD, reviewed by James I. Jensen III and Yvonne Hsieh, “Drug Labs and Endangered
Dudley, December, p. 17. September, p. 1. Children,” Tom Manning,
July, p. 10.
“Law Enforcement’s Response
to Individuals with Mental “GHB: Grievous Bodily Harm,”
Illness,” Jeff Wellborn, John S. Asante, April, p. 21.
November, p. 6.
“Timber Theft: A Solvable ETHICS
Crime,” David L. Windsor, “The Ethics of Intentionally
September, p. 17. Deceiving the Media,”
“Vehicle Stops Involving Michael E. Brooks, May,
Extremist Group Members,” p. 22.
James Kobolt, December, “Noble Cause Corruption and
p. 18. the Police Ethnic,” Bob
Harrison, August, p. 1.
DOMESTIC VIOLENCE
“Basic Investigative Protocol for FORENSICS
Child Sexual Abuse,” William “The Benefits of Scent Evi-
P. Heck, October, p. 19. dence,” Robert Hunt, Novem-
ber, p. 15.

December 1999 / 25
LEGAL ISSUES “Law Enforcement Accredita-
“Constitutional Authority to tion: One Department’s
Regulate Off-duty Relation- Experience,” Robert J.
ships: Recent Court Deci- Falzarano, November, p. 1.
sions,” Michael J. Bulzomi, “Self-directed Work Teams,”
April, p. 26. Stephen M. Ramirez, August,
p. 20.
“Crime Scene Searches: The
Need for Fourth Amendment NEGOTIATION
Compliance,” Kimberly A.
Crawford, January, p. 26. “Negotiation Concepts for
Commanders,” Gary W.
“Due Process and Deadly Force: Noesner, January, p. 6.
When Police Conduct Shocks
the Conscience,” John C. Hall, “Placing the Stockholm Syn-
February, p. 27. drome in Perspective,” G.
Dwayne Fuselier, July, p. 22.
“Drug Conspiracies,” Edward
M. Hendrie, June, p. 26. OPERATIONS
INVESTIGATIVE “Drug Roadblocks: A Constitu- “Bomb Threat: A Primer for the
TECHNIQUES tional Perspective,” Kimberly First Responder,” T.C. Fuller,
A. Crawford, November, p. 27. March, p. 28.
“Reexamining the Importance
of Firearm Investigations,” “Gang Congregation Ordinance:
Supreme Court Invalidation,” PERSONNEL
William J. Vizzard, May, p. 1.
Daniel L. Schofield, Septem- “Alcohol Abuse in Policing:
JUVENILES ber, p. 28. Prevention Strategies,” John
“Operation Linebacker: Using “Investigative Detentions: How M. Violanti, January, p. 16.
Status Offenses to Reduce Long is Too Long?” Jayme S.
Crime in Communities,” Walker, August, p. 26.
Robert J. Girod, July, p. 7. “The Motor Vehicle Exception:
“Police Liaison for Schools,” When and Where to Search,”
Martin J. Dunn, September, Lisa A. Regini, July, p. 26.
p. 7. “Search Incident to Arrest:
“Safeguarding Our Schools,” Another Look,” Thomas D.
Dennis Bridges, September, Colbridge, May, p. 27.
p. 23. “Supreme Court Cases: 1998-
“School Violence: Lessons 1999 Term,” Legal Instruction
Learned,” Stephen R. Band Unit, FBI Academy, October,
and Joseph A. Harpold, p. 26.
September, p. 9.
“The STARS Program: Students MANAGEMENT
Traveling and Arriving “Empowerment Policing,”
Safely,” Dennis Bridges, Michael S. Reiter, February,
August, p. 16. p. 7.

26 / FBI Law Enforcement Bulletin


“The FBI’s Critical Incident “The Deterrent Effect of Three TERRORISM
Stress Management Program,” Strikes Laws,” John R. “Confronting Terrorism on the
Vincent J. McNally and Roger Schafer, April, p. 6. State and Local Level,”
M. Solomon, February, p. 20. “Offenders’ Perceptual Short- D. Douglas Bodrero, March,
“Managing Undercover Stress: hand: What Messages Are p. 11.
The Supervisor’s Role,” Law Enforcement Officers “Critical Incident Management
Stephen R. Band and Donald Sending to Offenders?” in the Ultimate Crisis,” Joel
C. Sheehan, February, p. 1. Anthony J. Pinizzotto and Carlson, March, p. 19.
“Reluctance to Use Deadly Edward F. Davis, June, p. 1.
“Fighting Terrorism in the 21st
Force: Causes, Consequences, Century,” John F. Lewis, Jr.,
and Cures,” George T. Will- March, p. 3.
iams, October, p. 1.
“The Joint Terrorism Task
POLICE-COMMUNITY Force: A Concept That
RELATIONS Works,” Robert A. Martin,
March, p. 23.
“Neighborhood Watch: A
Leadership Challenge,” “Mass Transit: Target of
Thomas E. Baker, Jane P. Terror,” Kurt R. Nelson,
Baker, and Ralph Zezza, January, p. 19.
February, p. 12.
TRAINING
“Preserving Police History:
Benefits for the Present and “Fast Track,” Gene P. Klopf,
the Future,” Phillip D. October, p. 10.
Schertzing, April, p. 11. “Mentoring Programs Help New
“Problem-Solving Policing: Employees,” James E.
Eliminating Hot Spots,” Edmundson, October, p. 16.
Loreen Wolfer, Thomas E. “Police Training in the 21st
Baker, and Ralph Zezza, Century,” Michael L. Birzer,
November, p. 9. “Police Enforcement of Traffic July, p. 16.
Laws: A Cost-benefit Analy-
POLICE PROBLEMS sis,” John Moffat and Philip WHITE-COLLAR CRIME
Salzberg, April, p. 18. “The Bank Secrecy Act: A
“Buffalo’s Alternative to 911,”
Gerald W. Schoenle, Jr., May, Powerful Weapon for Law
TECHNOLOGY
p. 18. Enforcement,” Gary J.
“Computers, The Year 2000, and Kruchten, August, p. 8.
“Preferred Protocol for Death
Law Enforcement,” Clyde B. “Combating Check Fraud: A
Notification,” Brian J. Scott,
Eisenberg and Teresa F. Multifaceted Approach,”
August, p. 11.
Slattery, January, p. 1. Walter N. Hansen, May, p. 10.
“Understanding Subjects with
“Laser Threats to Law Enforce-
Paranoid Schizophrenia,” Kris “The CPA’s Role in Detecting
ment,” Douglas A. Johnson,
Mohandie and James E. Duffy, and Preventing Fraud,” Keith
May, p. 7.
December, p. 8. Slotter, July, p. 1.
“Policing the Internet,” Scott
Sullivan, June, p. 18. “Investigative Planning: Creat-
RESEARCH
ing a Strong Foundation for
“Assessing the Patterns of “Using the Internet to Dissemi- White-collar Crime Cases,”
Citizen Resistance During nate Crime Information,” Arthur L. Bowker, June, p. 22.
Arrests,” Darrell L. Ross, Rachel Boba, October, p. 6.
June, p. 5.
December 1999 / 27
1999 Author Index
A Bowker, Arthur L., Probation Bulzomi, Michael J., Special
Asante, John S., Officer, Officer, Northern District of Agent, FBI Academy,
Redmond Police Department, Ohio, Cleveland, Ohio, Quantico, Virginia, “Constitu-
Redmond, Washington, “GHB: “Investigative Planning: tional Authority to Regulate
Grievous Bodily Harm,” April, Creating a Strong Foundation Off-duty Relationships: Recent
p. 21. for White-collar Crime Cases,” Court Decisions,” April, p. 26.
June, p. 22.
B Bridges, Dennis, Lieutenant, C
Baker, Jane P., Scranton, Penn- Fresno Police Department, Carlson, Joel, Sandia National
sylvania, “Neighborhood Fresno, California, “The Laboratories, Albuquerque,
Watch: A Leadership Chal- STARS Program: Students New Mexico, “Critical Inci-
lenge,” February, p. 12. Traveling and Arriving dent Management in the
Safely,” August, p. 16; and Ultimate Crisis,” March, p. 19.
Baker, Thomas E., Assistant “Safeguarding Our Schools,”
Professor, University of Colbridge, Thomas D., Special
September, p. 22. Agent, FBI Academy,
Scranton, Scranton, Pennsylva-
nia, “Neighborhood Watch: Quantico, Virginia, “Search
A Leadership Challenge,” Incident to Arrest: Another
February, p. 12; and “Problem- Look,” May, p. 27.
Solving Policing: Eliminating Crawford, Kimberly A., Special
Hot Spots,” November, p. 9. Agent, FBI Academy,
Band, Stephen R., Special Quantico, Virginia, “Crime
Agent, FBI Academy, Scene Searches: The Need for
Quantico, Virginia, “Managing Fourth Amendment Com-
Undercover Stress: The Super- pliance,” January, p. 26; and
visor’s Role,” February, p. 1; “Drug Roadblocks: A Con-
and “School Violence: Les- stitutional Perspective,”
sons Learned,” September, November, p. 27.
p. 9. Cutler, Stephen P., Special
Birzer, Michael L., Lieutenant, Agent, FBI, International
Sedgwick County Sheriff’s Relations Branch, Washington,
Department, Wichita, Kansas, DC, “Building International
“Police Training in the 21st Cases: Tools for Successful
Century,” July, p. 16. International Investigations,”
Boba, Rachel, Crime Analyst, Brooks, Michael E., Special December, p. 1.
Tempe Police Department, Agent, FBI Academy,
Quantico, Virginia, “The D
Tempe, Arizona, “Using the
Internet to Disseminate Crime Ethics of Intentionally Deceiv- Davis, Edward, F., Instructor,
Information,” October, p. 6. ing the Media,” May, p. 22. FBI Academy, Quantico,
Bodrero, D. Douglas, Senior Buhler, Milan L., Lieutenant, Virginia, “Offenders’ Percep-
Research Associate, Institute Salt Lake County Sheriff’s tual Shorthand: What Mes-
for Intergovernmental Re- Office, Salt Lake City, Utah, sages Are Law Enforcement
search, Florida, “Confronting “The Fugitive Task Force: An Officers Sending to Offend-
Terrorism on the State and Alternative Organizational ers?” June, p. 1.
Local Level,” March, p. 11. Model,” April, p. 1.

28 / FBI Law Enforcement Bulletin


Duffy, James E., Special Agent, F
FBI Academy, Quantico, Falzarano, Robert J., Chief,
Virginia, “Understanding Long Hill Township Police
Subjects with Paranoid Schizo- Department, Stirling, New
phrenia,” December, p. 8. Jersey, “Law Enforcement
Dunn, Martin J., Chief, Lower Accreditation: One
Camden County Regional Department’s Experience,”
High School District, Atco, November, p. 1.
New Jersey, “Police Liaison Fuller, T.C., Special Agent, FBI,
for Schools,” September, p. 7. Burlington, Vermont, “Bomb
Threat: A Primer for the First
E Responder,” March, p. 28.
Edmundson, James E., Lieuten-
Fuselier, G. Dwayne, Special
ant, Fairfax County Police
Agent, FBI, Denver, Colorado,
Department, Fairfax, Virginia,
“Placing the Stockholm
“Mentoring Programs Help
Syndrome in Perspective,”
New Employees,” October,
July, p. 22.
p. 16. Harpold, Joseph A., Special
Eisenberg, Clyde B., Sergeant, G Agent, FBI Academy,
Hillsborough County Sheriff’s Garcia, Sabrina, Crisis Counse- Quantico, Virginia, “School
Office, Tampa, Florida, lor, Chapel Hill Police Depart- Violence: Lessons Learned,”
“Computers, the Year 2000, ment, Chapel Hill, North September, p. 9.
and Law Enforcement,” Carolina, “Blind Reporting of Harrison, Bob, Chief, Vacaville
January, p. 1. Sexual Violence,” June, p. 12. Police Department, Vacaville,
Girod, Robert J., Sergeant, Fort California, “Noble Cause
Wayne Police Department, Corruption and the Police
Fort Wayne, Indiana, “Opera- Ethic,”August, p. 1.
tion Linebacker: Using Status Heck, William P., Associate
Offenses to Reduce Crime in Professor, Northeastern State
Communities,” July, p. 7. University, Tahlequah, Okla-
homa, “Basic Investigative
H Protocol for Child Sexual
Hall, John C., Special Agent, Abuse,” October, p. 19.
FBI Academy, Quantico, Heimer, Gun, Director, National
Virginia, “Due Process and Center for Battered and Raped
Deadly Force: When Police Women, Uppsala, Sweden,
Conduct Shocks the Con- “Sweden’s Response to
science,” February, p. 27 Domestic Violence,” Novem-
Hansen, Walter N., Special ber, p. 19.
Agent, FBI, New York, New Henderson, Margaret, Executive
York, “Combating Check Director, Orange County Rape
Fraud: A Multifaceted Ap- Crisis Center, Chapel Hill,
proach,” May, p. 10. North Carolina, “Blind Report-
ing of Sexual Violence,” June,
p. 12.

December 1999 / 29
Hendrie, Edward M., Special L Moffat, John, Director, Wash-
Agent, DEA, FBI Academy, Lewis, John F., Jr., Director, ington Traffic Safety Commis-
Quantico, Virginia, “Drug Global Security, Goldman, sion, Olympia, Washington,
Conspiracies,” June, p. 26. Sachs, and Company, New “Police Enforcement of Traffic
Hsieh, Yvonne, Honors Intern, York, New York, “Fighting Laws: A Cost-benefit Analy-
FBI Academy, Quantico, Terrorism in the 21st Cen- sis,” April, p. 18.
Virginia, “Law Enforcement tury,” March, p. 3. Mohandie, Kris, Police Psy-
and the Millennialist Vision: A chologist, Los Angeles Police
Behavioral Approach,” M Department, Los Angeles,
September, p. 1. Manning, Tom, Deputy District California, “Understanding
Hunt, Robert, Special Agent, Attorney, San Diego, Califor- Subjects with Paranoid Schizo-
FBI Academy, Quantico, nia, “Drug Labs and Endan- phrenia,” December, p. 8.
Virginia, “The Benefits of gered Children,” July, p. 10.
Scent Evidence,” November, N
p. 15. Nelson, Kurt R., Officer, Port-
land Police Bureau, Portland,
J Oregon, “Mass Transit: Target
Jensen, Carl J. III, Special of Terror,” January, p. 19.
Agent, FBI Academy, Noesner, Gary W., Special
Quantico, Virginia, “Law Agent, FBI Academy,
Enforcement and the Quantico, Virginia, “Negotia-
Millennialist Vision: A tion Concepts for Command-
Behavioral Approach,” ers,” January, p. 6.
September, p. 1. Nylén, Lars, Commissioner,
Johnson, Douglas A., Laser National Criminal Investiga-
Safety officer, Texas A&M tion Department, Stockholm,
University, College Station, Sweden, “Sweden’s Response
Texas, “Laser Threats to Law to Domestic Violence,”
Enforcement,” May, p. 7. November, p. 19.

K P
Klopf, Gene P., Special Agent, Pinizzotto, Anthony J., Forensic
FBI Academy, Quantico, Psychologist, FBI Academy,
Virginia, “Fast Track,” Martin, Robert A., Deputy Quantico, Virginia, “Offend-
October, p. 10. Inspector, New York City ers’ Perceptual Shorthand:
Kobolt, James, Director, Insti- Police Department, New York, What Messages Are Law
tute for Public Safety, Sault New York, “The Joint Terror- Enforcement Officers Sending
Sainte Marie, Michigan, ism Task Force: A Concept to Offenders?” June, p. 1.
“Vehicle Stops Involving That Works,” March, p. 23.
Extremist Group Members,” R
McNally, Vincent J., Special
December, p. 18. Agent, FBI Headquarters, Ramirez, Stephen M., Chief, St.
Kruchten, Gary J., Law Enforce- Washington, DC, “The FBI’s Mary’s University Police
ment Consultant, “The Bank Critical Incident Stress Man- Department, San Antonio,
Secrecy Act: A Powerful agement Program,” February, Texas, “Self-directed Work
Weapon for Law Enforce- p. 20. Teams,” August, p. 20.
ment,” August, p. 8.

30 / FBI Law Enforcement Bulletin


Schafer, John R., Special Agent, Solomon, Roger M., Director,
FBI, Los Angeles, California, Critical Incident Recovery
“The Deterrent Effect of Three Resources, Amherst, New
Strikes Law,” April, p. 6. York, “The FBI’s Critical
Schertzing, Phillip D., Inspector, Incident Stress Management
Michigan State Police, Lan- Program,” February, p. 20.
sing, Michigan, “Preserving Sullivan, Scott, Patrolman,
Police History: Benefits for the Westchester County Police
Present and the Future,” April, Department, Hawthorne, New
p. 11. York, “Policing the Internet,”
Schoenle, Gerald W., Jr., June, p. 18.
Captain, Buffalo Police
Department, Buffalo, New V
York, “Buffalo’s Alternative Violanti, John M., Associate
to 911,” May, p. 18. Professor, Rochester Institute
Schofield, Daniel L., Special of Technology, Rochester,
Agent, FBI Academy, New York, “Alcohol Abuse in
Quantico, Virginia, “Gang Policing: Prevention Strate-
Regini, Lisa A., Special Agent, Congregation Ordinance: gies,” January, p. 16.
FBI Academy, Quantico, Supreme Court Invalidation,” Vizzard, William J., Associate
Virginia, “The Motor Vehicle September, p. 28. Professor, California State
Exception: When and Where Scott, Brian J., Officer, University, Sacramento,
to Search,” July, p. 26. Burlington Police Department, California, “Reexamining the
Reiter, Michael S., Assistant Burlington, Wisconsin, and Importance of Firearm Investi-
Chief, Palm Beach Police Wisconsin State Fair Police, gations,” May, p. 1.
Department, Palm Beach, “Preferred Protocol for Death
Florida, “Empowerment Notification,” August, p. 11.
Policing,” February, p. 7. Sheehan, Donald C., Special
Ross, Darrell L., Associate Agent, FBI Academy,
Professor, East Carolina Quantico, Virginia, “Managing
University, Greenville, North Undercover Stress: The
Carolina, “Assessing the Supervisor’s Role,” February,
Patterns of Citizen Resistance p. 1.
During Arrests,” June, p. 5. Slattery, Teresa F., Deputy,
Hillsborough County Sheriff’s
S
Office, Tampa, Florida,
Salzberg, Philip, Research “Computers, the Year 2000,
Director, Washington Traffic and Law Enforcement,”
Safety Commission, Olympia, January, p. 1.
Washington, “Police Enforce-
Slotter, Keith, Special Agent,
ment of Traffic Laws: A Cost-
FBI, New Haven, Connecticut,
benefit Analysis,” April, p. 18.
“Investigative Assets: The
CPA’s Role in Detecting and
Preventing Fraud,” July, p. 1.

December 1999 / 31
W Windsor, David L., Lieutenant,
Walker, Jayme S., Instructor, Indiana Department of Natural
DEA, FBI Academy, Resources, Indianapolis, Indi-
Quantico, Virginia, “Investiga- ana, “Timber Theft: A Solv-
tive Detentions: How Long is able Crime,” September, p. 17.
Too Long?” August, p. 26. Wolfer, Loreen, Assistant
Wellborn, Jeff, Program Admin- Professor, University of
istrator, New Orleans Police Scranton, Scranton, Pennsylva-
Department, New Orleans, nia, “Problem-Solving Polic-
Louisiana, “Law ing: Eliminating Hot Spots,”
Enforcement’s Response to November, p. 9.
Individuals with Mental
Illness,” November, p. 6. Z
Williams, George T., Director Zezza, Ralph, Officer, West
of Training, Cutting Edge Pittston Police Department,
Training, Bellingham, Wash- West Pittston, Pennsylvania,
ington, “Reluctance to Use “Neighborhood Watch: A
Deadly Force: Causes, Conse- Leadership Challenge,”
quences, and Cures,” October, February, p. 12; and “Problem-
p. 1. Solving Policing: Eliminating
Hot Spots, November, p. 9.

Officer Scott Grunhurd of the Bellingham, Washington, Police Department


was dispatched to a 911 hang-up call. After arriving at the residence, Officer
Grunhurd saw a man walking in the apartment, but the individual would not
respond to the knocks on the door. The officer did not know that the resident
was hearing impaired, suicidal, and had doused the apartment and himself with
lamp oil. The resident also had arranged several butcher knives in the couch
cushions and planned to throw himself on the blades as he ignited his residence.
When Officer Grunhurd observed flames coming from the back of the couch, he
radioed for assistance and attempted to enter the apartment, but the front door
was blocked by a large piece of furniture. Officer Grunhurd was able to move the
Officer Grunhurd obstruction to gain entry to the apartment, extinguish the fire, and control the
suicidal individual until additional assistance arrived. Officer Grunhurd’s quick
response not only saved the individual’s life but prevented a potential fire in the apartment, which
could have endangered other occupants.

32 / FBI Law Enforcement Bulletin


The Bulletin Notes
Law enforcement officers are challenged daily in the performance of their duties; they face each
challenge freely and unselfishly while answering the call to duty. In certain instances, their actions
warrant special attention from their respective departments. The Bulletin also wants to recognize
their exemplary service to the law enforcement profession.

Chief Raymond O’Hare and Officer Michael Thomp-


son of the Keansburg, New Jersey, Police Department
responded to an incident where an employee at an
amusement park had fallen off a pier into 10 feet of 40-
degree temperature water. Without any ladders on the
pier, the subject was unable to get out of the water. The
first responding officers threw two life rings to the
victim, who remained in the water almost 30 minutes
until Chief O’Hare and Officer Thompson, members of
the department’s dive team, arrived and were lowered
Chief O'Hare Officer Thompson down to the victim. They began to bring the victim back
to shore, 1/2 mile away. The victim began to lose con-
sciousness; therefore, the officers tied a fire hose around him and a Coast Guard cutter pulled him out
of the water. At the time of rescue, the temperature was 30 degrees with 15-25 miles-per-hour wind.
Chief O’Hare’s and Officer Thompson’s prompt actions led to the successful rescue of the man.

Officers Gary Miranda and Ken Witt of the Santa


Ana, California, Police Department responded to a
shooting at a residence where a man had attempted to kill
a police officer. After 3 hours of negotiation, chemical
agents were deployed to persuade the suspect to surrender
peacefully. When this attempt failed, an arrest team
entered the house in total darkness using their tactical
lights and coping with chemical agents. A police canine,
sent into the bedroom where the suspect was hiding,
sustained a gunshot wound to the shoulder. More chemi-
Officer Miranda Officer Witt cal agents were used in the bedroom, limiting visibility.
The suspect ran from the bedroom, shooting and hitting
one officer. Officers Miranda and Witt entered the bedroom and observed the suspect preparing to fire.
As the subject moved to the center of the bedroom, still pointing the gun at the officers, both officers
fired their weapons, fatally wounding the subject. Officers Miranda and Witt demonstrated tremendous
courage while confronting an extremely violent subject during a hostile situation. Their bravery
prevented the suspect from harming other officers.
U.S. Department of Justice Periodical
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935 Pennsylvania Avenue, N.W. ISSN 0014-5688
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Patch Call

The patch of the Hendersonville, Tennessee, The Anacortes, Washington, Police Department
Police Department depicts sunny Old Hickory Lake, patch features Mt. Baker and the northern waters of
the focal point of the city. The sailboat represents the Puget Sound. Anacortes is designated as the “Gate-
numerous recreational activities of the lakeside way to the San Juans.” The ferry depicted on the
community. The Canadian goose was transplanted patch represents the only access to the San Juan
from the north and now thrives on the shores of Old Islands. The logo for the City of Anacortes appears at
Hickory Lake. Three cogs at the bottom of the patch the bottom of the patch and consists of a compass, in
represent the city’s solid industrial and business the shape of a seagull flying over the ocean, and 1891,
foundation, and the willingness of business, industry, the year the city was incorporated.
government, and citizens to work together smoothly.

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