U.S. Department of Justice

Office of Community Oriented Policing Services 

DOJ Seal
Misuse and Abuse of 911
Problem-Oriented Guides for Police Problem-Specific Guides Series number 19
Center for Problem-Oriented Policing
www.PopCenter.org


 Web-enhanced versions of all currently available Guides 
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Designed for police and those who work with them to 
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Supported by the Office of Community Oriented Policing 
Services, U.S. Department of Justice. 


Misuse and Abuse of 911 

Rana Sampson 

This project was supported by cooperative agreement 
#99-CK-WX-K004 by the Office of Community Oriented 
Policing Services, U.S. Department of Justice. The opinions 
contained herein are those of the author(s) and do not 
necessarily represent the official position of the U.S. 
Department of Justice. 

www.cops.usdoj.gov 

ISBN: 1-932582-18-5 

August 2004 


About the Problem-Specific Guides Series 

The Problem-Specific Guides summarize knowledge about 
how police can reduce the harm caused by specific crime 
and disorder problems. They are guides to prevention and 
to improving the overall response to incidents, not to 
investigating offenses or handling specific incidents. The 
guides are written for policeof whatever rank or 
assignmentwho must address the specific problem the 
guides cover. The guides will be most useful to officers 
who 

 
Understand basic problem-oriented policing 
principles and methods. The guides are not primers in 
problem-oriented policing. They deal only briefly with 
the initial decision to focus on a particular problem, 
methods to analyze the problem, and means to assess 
the results of a problem-oriented policing project. They 
are designed to help police decide how best to analyze 
and address a problem they have already identified. (An 
assessment guide has been produced as a companion to 
this series and the COPS Office has also published an 
introductory guide to problem analysis. For those who 
want to learn more about the principles and methods of 
problem-oriented policing, the assessment and analysis 
guides, along with other recommended readings, are 
listed at the back of this guide.) 
 
Can look at a problem in depth. Depending on the 
complexity of the problem, you should be prepared to 
spend perhaps weeks, or even months, analyzing and 
responding to it. Carefully studying a problem before 
responding helps you design the right strategy, one that 
is most likely to work in your community. You should 
not blindly adopt the responses others have used; you 
must decide whether they are appropriate to your local 



situation. What is true in one place may not be true 
elsewhere; what works in one place may not work 
everywhere. 

 
Are willing to consider new ways of doing police 
business. The guides describe responses that other 
police departments have used or that researchers have 
tested. While not all of these responses will be 
appropriate to your particular problem, they should help 
give a broader view of the kinds of things you could do. 
You may think you cannot implement some of these 
responses in your jurisdiction, but perhaps you can. In 
many places, when police have discovered a more 
effective response, they have succeeded in having laws 
and policies changed, improving the response to the 
problem. 

 
Understand the value and the limits of research 
knowledge. For some types of problems, a lot of useful 
research is available to the police; for other problems, little 
is available. Accordingly, some guides in this series 
summarize existing research whereas other guides illustrate 
the need for more research on that particular problem. 
Regardless, research has not provided definitive answers to 
all the questions you might have about the problem. The 
research may help get you started in designing your own 
responses, but it cannot tell you exactly what to do. This 
will depend greatly on the particular nature of your local 
problem. In the interest of keeping the guides readable, not 
every piece of relevant research has been cited, nor has 
every point been attributed to its sources. To have done so 
would have overwhelmed and distracted the reader. The 
references listed at the end of each guide are those drawn 
on most heavily; they are not a complete bibliography of 
research on the subject. 



 Are willing to work with other community agencies 
to find effective solutions to the problem. The police 
alone cannot implement many of the responses 
discussed in the guides. They must frequently implement 
them in partnership with other responsible private and 
public entities. An effective problem-solver must know 
how to forge genuine partnerships with others and be 
prepared to invest considerable effort in making these 
partnerships work. 

These guides have drawn on research findings and police 
practices in the United States, the United Kingdom, 
Canada, Australia, New Zealand, the Netherlands, and 
Scandinavia. Even though laws, customs and police 
practices vary from country to country, it is apparent that 
the police everywhere experience common problems. In a 
world that is becoming increasingly interconnected, it is 
important that police be aware of research and successful 
practices beyond the borders of their own countries. 

The COPS Office and the authors encourage you to 
provide feedback on this guide and to report on your own 
agency's experiences dealing with a similar problem. Your 
agency may have effectively addressed a problem using 
responses not considered in these guides and your 
experiences and knowledge could benefit others. This 
information will be used to update the guides. If you wish 
to provide feedback and share your experiences it should 
be sent via e-mail to cops_pubs@usdoj.gov. 


For more information about problem-oriented policing, 
visit the Center for Problem-Oriented Policing online at 
www.popcenter.org or via the COPS website at 
www.cops.usdoj.gov. This website offers free online access to: 

 the Problem-Specific Guides series, 
 the companion Response Guides and Problem-Solving Tools 
series, 
 instructional information about problem-oriented policing 
and related topics, 
 an interactive training exercise, and 
 online access to important police research and practices. 



Acknowledgments 

The Problem-Oriented Guides for Police series is very much a 
collaborative effort. While each guide has a primary author, 
other project team members, COPS Office staff and 
anonymous peer reviewers contributed to each guide by 
proposing text, recommending research and offering 
suggestions on matters of format and style. 

The principal project team developing the guide series 
comprised Herman Goldstein, professor emeritus, University 
of Wisconsin Law School; Ronald V. Clarke, professor of 
criminal justice, Rutgers University; John E. Eck, associate 
professor of criminal justice, University of Cincinnati; 
Michael S. Scott, clinical assistant professor, University of 
Wisconsin Law School; Rana Sampson, police consultant, San 
Diego; and Deborah Lamm Weisel, director of police 
research, North Carolina State University. 

Karin Schmerler, Rita Varano and Nancy Leach oversaw the 
project for the COPS Office. Megan Tate Murphy 
coordinated the peer reviews for the COPS Office. Suzanne 
Fregly edited the guides. Research for the guides was 
conducted at the Criminal Justice Library at Rutgers 
University under the direction of Phyllis Schultze by Gisela 
Bichler-Robertson, Rob Guerette and Laura Wyckoff. 

The project team also wishes to acknowledge the members of 
the San Diego, National City and Savannah police 
departments who provided feedback on the guides' format 
and style in the early stages of the project, as well as the line 
police officers, police executives and researchers who peer 
reviewed each guide. 


Contents 

About the Problem-Specific Guides Series i
Acknowledgments v
The Problem of Misuse and Abuse of 911 1
Related Problems 1
Scope of the Problem 2
Unintentional 911 Calls 2
Phantom Wireless 911 Calls 2
911 Misdials and Hang-Up Calls 4
Intentional 911 Calls 5
Nonemergency 911 Calls 5
Prank 911 Calls 5
Exaggerated Emergency 911 Calls 6
Lonely Complainant 911 Calls 7
Understanding Your Local Problem 9
Asking the Right Questions 9
Incidents 9
Impact on 911 Resources 10
Offenders 10
Locations/Times 10
Current Responses 11
Measuring Your Effectiveness 11
Responses to The Problem of Misuse and Abuse of 911 13
Responses to Phantom Wireless 911 Calls 13
Responses to Phantom Wireless 911 Calls With Limited Effectiveness 16
Responses to 911 Misdials and Hang-Up Calls 18
Responses to 911 Hang-Up Calls With Limited Effectiveness 20
Responses to Nonemergency 911 Calls 20
Responses to Prank 911 Calls 21

Response to Exaggerated Emergency 911 Calls 24
Response to Lonely Complainant 911 Calls 25
Appendix: Summary of Responses to Misuse and Abuse of 911 27
Endnotes 33
References 35
About the Author 37
Recommended Readings 39
Other Problem-Oriented Guides for Police 43


The Problem of Misuse and Abuse of 911 

This guide addresses the problem of misuse and abuse of 
911. It begins by describing the problem and its scope. It 
then identifies a series of questions to help you analyze your 
local problem, and discusses potential responses to it. 

 The equivalent U.K. emergency 
number is 999. 

There is little evaluative research on 911 misuse and abuse. 
The responses suggested are based on sound problem-
oriented policing principles, but as new phone technology 
poses additional challenges, some responses have yet to be 
tested. Thus, this guide is mainly intended to describe an 
urgent problem and encourage police agencies to analyze and 
address it. 

Related Problems 

Misuse and abuse of 911 shares some similarities with the 
problems listed below, which require their own analysis and 
response. This guide does not address these problems: 

 multiple 911 calls about the same incident, such as multiple 
calls about a traffic accident; and 
 false burglar and fire alarm 911 calls (see the False Burglar 
Alarms guide in this series). 




Scope of the Problem 

For the purposes of this guide, 911 misuse and abuse is 
divided into two categories: unintentional and intentional 
calls. Each category contains different types of 911 misuse 
and abuse calls, as described below. While there are no 
national surveys detailing the full extent of 911 misuse and 
abuse, estimates from various organizations and agencies 
suggest the problem is widespread in the United States and 
elsewhere. Some of the particulars regarding the calls may 
vary depending on local circumstances. 

 One reason for using these 
categories is that some police 
agencies already do so in classifying 
911 misuse and abuse calls. A second 
reason is that it immediately identifies 
the purpose for the call; however, 
one must look further to determine if 
calls are a misuse or abuse of 911. 


Unintentional 911 Calls 

Unintentional calls occur when a person or phone 
inadvertently dials 911. This category includes phantom 
wireless calls, and misdials and hang-up calls. 

Phantom Wireless 911 Calls 

Phantom wireless calls are a documented problem in the 
United States, Canada, the United Kingdom, and Australia, 
although other countries where wireless phones are 
extensively used probably also experience this problem since 
wireless systems are similar, despite location. Such calls occur 
for the following reasons: 

 Automatic dialing: If a cell phone user inadvertently 
presses the 9 or 1 key on a phone preprogrammed to dial 
911, the phone automatically dials 911, even without the 
user having to press "send." This often happens when a 
wireless phone is attached to a belt or in a pocket or purse, 
and the 9 or 1 is bumped. Most wireless users are unaware 
that their phones are preprogrammed to dial 911 and retail 
salespersons do not inform purchasers that their phones are 
susceptible to unintentional 911 dialing. 


 Redialing or resending: If, after completing a 911 call, a 
wireless caller accidentally presses or bumps the "redial" or 
"send" key, the phone dials 911 again. (Note that landline 
users may also accidentally redial 911 this way.) 
 Random dialing: Some older wireless phones dial 911 
when the phone's batteries are low. 


The National Emergency Number Association reports that 
phantom wireless calls account for between 25 and 70 percent 
of all 911 calls in some U.S. communities. The California 
Highway Patrol (currently the handler of nearly all California 
wireless 911 calls) estimates that between 1.8 million and 3.6 
million of the 6 million wireless 911 calls it receives annually 
are phantom. U.K. police estimate they receive 11,000 
phantom wireless calls per day to their 999 emergency 
number. The wide data variations highlight the need for 
further research to pinpoint the scale of the problem. 

However, the problem is already serious enough to suggest 
that ignoring it could have severe ramifications for police and 
legitimate 911 callers. 

Of all the 911 misuse and abuse problems this guide 
addresses, phantom wireless calls will show the quickest 
increase, unless addressed. The U.S. 911 system handles 
500,000 calls daily, or about 183 million annually.1 One in four 
calls are from wireless phones, a tenfold increase since 1991.2 
In the next five years, the number of wireless 911 calls is 
expected to double from the current 46 million per year3 to 92 
million annually, potentially exacerbating an already significant 
phantom call problem. 

 When their batteries are low, some 
phones start randomly dialing 
numbers, eventually dialing 911. The 
call goes through without pressing 
the "send" button. 

 As wireless carriers move into 
Enhanced 911, Phase II, 911 centers 
will be able to locate wireless callers. 
However, since so many wireless 911 
calls are unintentional, implementing 
Phase II will be a less important 
lifesaving measure than addressing 
the current problem of phantom 
calls, since they prolong the time it 
takes for dispatchers to respond to 
other calls. 




911 Misdials and Hang-Up Calls 

Misdials and hang-up calls are another 911 problem. Police 
suspect that many of these calls occur when callers misdial 
area codes similar to 911. Others result from misdialing of 
the international access number011. In addition, business 
Centrex and fax users sometimes dial 9 to get an outside line, 
when their phone systems do not require doing so, if the 
caller then dials a number starting with 1 and depresses 1 
again by accident, the system dials 911 (thus 911 operators 
sometimes hear fax static on the line). In 2000, the Pinellas 
County, Florida, Emergency Communications Center received 
20,646 misdials, accounting for 4 percent of all its 911 calls. 
In Loves Park, Illinois, 3 percent of the 911 calls received in 
2000 resulted from area code, international access number 
and Centrex misdials. 

 Such area codes include those for 
Wilmington, N.C. (910); Savannah, 
Ga. (912); Kansas City, Kan. (913); 
Westchester County, N.Y. (914); El 
Paso, Texas (915); Sacramento, Calif. 
(916); some parts of New York City 
(917); Tulsa, Okla. (918); and Raleigh, 
N.C. (919). 

 The Pinellas County 911 
coordinator collects data on all 911 
calls and tracks year-to-year increases 
in different types of calls, such as 
misdials and hang-ups. 

It is suspected that many misdials end up as hang-up calls, 
once the callers realize their mistake. Agencies that have 
examined hang-up calls report that a majority are due to caller 
misdialing (rather than prank calls or hang-ups for other 
reasons). Many agencies instruct citizens not to hang up if 
they misdial 911. If a caller hangs up, many agencies conduct 
callbacks or dispatch officers to determine if a police or 
medical emergency exists. 

The number of 911 wireless misdials and hang-ups is 
impossible to pin down without caller ID, which would allow 
for callbacks to determine the cause. However, without 
significant improvements, wireless caller location information 
will tax the resources of many 911 centers, unless the 
phantom call problem is resolved. 


Intentional 911 Calls 

Callers sometimes deliberately, but inappropriately, dial 911. 
Such intentional calls fall under several distinct categories. 

Nonemergency 911 Calls 

Nonemergency calls often constitute a large portion of all 911 
calls. Callers sometimes phone about an incidentalbeit not 
an emergencythat requires police attention (e.g., the caller's 
car was broken into the previous night, or the caller has been 
involved in a noninjury vehicle accident). Others call 911 to 
ask about non-police-related matters (e.g., the time of a 
football game, the directions to a local event, the exact time 
of day, or the time of garbage pick-ups). In addition, because 
wireless carriers do not charge for 911 calls, cell phone users 
sometimes call 911 and ask the dispatcher to transfer their call 
to a non-police number, to avoid paying for it. At least one 
police agency found that it was their own off-duty personnel 
who abused 911 in this way. 

Prank 911 Calls 

People sometimes call 911 to falsely claim an emergency or to 
deliberately hang up. Most agencies do not keep separate 
totals on the number of prank calls, so it is unclear how 
significant a problem this is in the United States. Some of 
these calls are referred to, in policing circles, as children 
"playing on the phone." These calls generally come from 
private homes or pay phonesparticularly pay phones easily 
accessible to teens and children (such as in or near malls, 
bowling alleys, or schools). In some of the more extreme 
cases, students falsely claim to have planted a bomb in a 
school. Doing so is a quick way to anonymously force the 
immediate evacuation of the school and cessation of classes. 

 For example, in 2000, 40 percent of 
the 911 calls in Jefferson County, Ky., 
were nonemergencies (Tangonan 
2000). In Floyd County, Ind., nearly 
half the monthly 911 calls are 
nonemergencies (Tangonan 2000). In 
2001, the San Diego Sheriff's 
Department reported that more than 
half of its 911 calls were frivolous 
(Ma 2001). 

 Some students use this tactic to 
avoid and postpone an academic test 
for which they are unprepared. For 
some of the same reasons, students 
sometimes pull school fire alarms. 


A subcategory of prank calls is diversionary calls. A caller dials 
911 to send the police to a location where no emergency has 
occurred, diverting them away from the caller's criminal 
activity. During the 1990s, when open-air drug markets were 
at a peak in the United States, officers frequently noted such 
calls and their suspicions that drug dealers were behind them. 
There are only a few ways to determine if a call is 
diversionary: if the caller admits it; if someone informs on 
the caller; or if the dispatcher or police compare the caller's 
location with that of the alleged emergency, to determine if 
the caller could plausibly claim an emergency at the called in 
location. 

The difference between "playing on the phone" calls and 
diversionary calls lies in the motives behind them. Those who 
"play on the phone" (but do not immediately hang up) 
typically want to see the police respond, so they are unlikely to 
send the police to an area not visible to them. Diversionary 
callers want the opposite result. (Examples of police 
responses to both types of calls are provided later in this 
guide.) 

Exaggerated Emergency 911 Calls 

Sometimes 911 callers intentionally exaggerate the seriousness 
of an emergency to get a quicker police response (although it 
is unclear how extensive this problem is). For example, a caller 
may falsely report "shots fired" when calling about a dispute 
or assault. Such 911 misuse is difficult to prove because the 
caller might simply claim, for instance, that he or she heard 
shots but did not actually see a gun fired. In other words, the 
caller knows there is enough room for "caller error" that he 
or she cannot be charged (or prosecuted) for the exaggerated 
911 call. 


Lonely Complainant 911 Calls 

Some 911 callers, over a series of months or years, repeatedly 
report an emergency, yet the police never find any evidence of 
one. The calls are not pranks, and they do not neatly fit into 
the exaggerated emergency category. They are typically made 
by the live-alone elderly or mentally ill. Some callers suffer 
from delusions, actually believing an emergency is occurring; 
others are often simply seeking company, perhaps not 
realizing the public expense of their calls and the accident-
injury risks involved in officers responding to high priority 
dispatch calls. The fact that these callers commonly claim an 
intruder is in their yard or house perhaps suggests a rational 
manipulation of 911 and of police services. 


Understanding Your Local Problem 

The information provided above is only a generalized 
description of 911 misuse and abuse. You must combine the 
basic facts with a more specific understanding of your local 
problem. Carefully analyzing your problem will help you 
design a more effective response strategy. 

Asking the Right Questions 

The following are some critical questions you should ask in 
analyzing your particular 911 misuse and abuse problem, even 
if the answers are not always readily available. To accurately 
assess the magnitude of the problem, you may find that you 
must refine how your dispatch center records certain call 
types. Your answers to these and other questions will help you 
choose the most appropriate set of responses later on. 

Incidents 

 Which specific nature codes identify 911 misuse and abuse? 
 What percentage of 911 calls are wireless? What percentage 
of wireless calls are phantom? 
 What percentage of calls are misdials? What percentage of 
misdials are from private homes? From fax machines? 
 What percentage of calls are hang-ups? What percentage of 
hang-ups are from private homes? From pay phones? Do 
dispatcher callbacks to home and pay phones illuminate a 
pattern as to the cause of the hang-ups? What percentage 
of hang-ups are actual emergencies? 
 What percentage of calls are nonemergencies, including 
transfer call requests? 
 What percentage of calls are pranks, such as false bomb 
threats or those that clearly involve children "playing on the 
phone"? To what extent are such calls a problem? Are there 
any indications that diversionary calls are a problem? If so, 
are there any patterns to those calls? 


 Police communications centers use 
nature codes to classify incoming 911 
calls. 

 The Loves Park 911 center 
determined, through analysis, that an 
increase in landline hang-ups 
between 1993 and 1994 was due to 
their phone company's switching all 
city calls, other than those to 911, 
from analogue to digital. (With 
analogue calls, there is a pause before 
the phone rings.) Many 911 callers, 
now accustomed to hearing an 
immediate ring, were assuming the 
pause meant their call did not go 
through, and were hanging up before 
a 911 operator answered. The 911 
center's supervisor asked the phone 
company to replace the pause with a 
false ring, and 911 hang-ups 
subsequently dropped to previous 
levels. 


 What percentage of "shots fired" calls are downgraded to 
assaults without a firearm once police investigate? Are there 
any patterns of other exaggerated emergency calls? 
 Are there any patterns of lonely complainant calls? If so, to 
what extent are such calls a problem? 


Impact on 911 Resources 

 What percentage of your 911 resources are annually 
consumed with calls that qualify as misuse and abuse? 
 How long does it take 911 personnel to determine if a call is 
phantom? A landline misdial? 
 Do phantom and nonemergency calls delay response to 
other emergencies? If so, by how long? 
 What is the current total cost to your 911 center and/or 
police department for handling phantom wireless calls, 
misdials and hang-up calls, nonemergency calls, prank calls, 
exaggerated emergency calls, and lonely complainant calls? 


Offenders 

 Which wireless phone brands and models account for 
automatic dialing of 911? For random dialing? 
 Which businesses and what types of fax machines account 
for fax calls to 911? 
 What percentage of misdials and hang-ups are by adults? 
Teens and children? 


Locations/Times 

 Do certain locations account for higher percentages of 911 
hang-up and prank calls (e.g., malls, bowling alleys, schools, 
common routes to schools, skating rinks, convenience 
stores pay phone banks, or casinos with indoor or nearby 
pay phones)? 
 Who owns the phones at these locations? Do the owners 
adequately monitor the phones? 
 Do hang-up calls cluster around certain times (e.g., times 
when children are released from school, times of year)? 



 Do nonemergency calls cluster around certain times of day? 
Days of week? Times of year (e.g., the football season or 
over the holidays)? 



Current Responses 

 How does your 911 center monitor 911 misuse and abuse?  
Are responses measured for their effectiveness in reducing  
it?  

 What local and state laws govern 911 misuse and abuse? Are  
they adequate? Do they address each aspect of the  
problem? Are they used to address the problem, and if so,  
have they reduced it? 
 Are the wireless phone manufacturers in your area aware of  
and concerned about phantom calls?  
 Does your jurisdiction advise citizens to stay on the line if 
they misdial 911? 
 Ifyou receive lonely complainant calls, what efforts have 
you made to stop them? 
 What repercussions, if any, apply to callers who exaggerate 
an emergency? 


Measuring Your Effectiveness 

Measurement allows you to determine to what degree your 
efforts have succeeded, and suggests how you might modify 
your responses if they are not producing the intended results. 
You should take measures of your problem before you 
implement responses, to determine how serious the problem 
is, and after you implement them, to determine whether they 
have been effective. (For more detailed guidance on 
measuring effectiveness, see the companion guide to this 
series, Assessing Responses to Problems: An Introductory Guide for 
Police Problem-Solvers.) 

 Many local and state laws that 
address 911 misuse and abuse may 
require revision to cover all aspects 
of the problem.

 For example, the Framingham,
Mass. Police Department's website
(http://framinghampd.org/patrol/e9
11.html) contains this message: "If
you dial 911 by accident, do not hang 
up the phone, all hang-ups on 911
must have police and or fire
dispatched to the location to check
on the call. Accidents happen, stay
on and tell the operator it was an
error." 



The following are potentially useful measures of the 
effectiveness of responses to 911 misuse and abuse: 

 reduced number of phantom wireless calls; 
 reduced number of phantom calls from wireless phones 
previously susceptible to them; 
 reduced number of misdials and hang-up calls; 
 increased rate ofphantom and hang-up calls that are actual 
emergencies; 
 reduced number of prank calls; 
 reduced number of exaggerated emergency calls; 
 reduced number of lonely complainant calls; 
 reduced amount oftime, on average, it takes for dispatchers 
to answer calls; 
 reduced number of personnel hours spent handling misuse 
and abuse calls; 
 reduced misuse and abuse call rates for various types of 
premisesprivate homes, malls, bowling alleys, schools, 
convenience stores, etc.; 
 reduced incidence ofmisuse and abuse calls at certain times, 
such as during rush hour, after school lets out, over the 
holidays, and during summer months; and 
 reduced overall number of misuse and abuse calls. 



Responses to the Problem of Misuse and 
Abuse of 911 

Your analysis of your local problem should give you a better 
understanding of the factors contributing to it. Once you 
have analyzed your local problem and established a baseline 
for measuring effectiveness, you should consider possible 
responses to address the problem. 

There is no nationally recognized protocol to address 911 
misuse and abuse. Rather, there is a patchwork of federal, 
local and private responses. They are detailed below, along 
with other suggested responses, to provide a foundation of 
ideas for addressing your particular problem. Some forms of 
the problemsuch as phantom wireless callsmust be 
addressed at the federal level, but this will occur only if local 
agencies combine their efforts to highlight the extent of the 
problem. Conversely, landline 911 problems are best 
addressed at the local level. It is critical that you tailor these 
responses to local circumstances, and that you can justify each 
response based on reliable analysis. In most cases, an effective 
strategy will involve implementing several different responses. 
Police responses alone are seldom effective in sufficiently 
reducing or solving the problem. Do not limit yourself to 
considering what police can do; give careful consideration to 
who else in your community shares responsibility for the 
problem and can help police better respond to it. 

Responses to Phantom Wireless 911 Calls 

1. Requiring manufacturers to redesign wireless phones. 

On June 9, 1999, the Federal Communications Commission 
(FCC), which regulates the wireless industry, requested that 
manufacturers redesign their wireless phones to address the 
phantom call problem.4 However, most manufacturers do not 
appear to have heeded this request. The FCC advised 




manufacturers that, if necessary, it would adopt specific rules 
to reduce phantom calls. The FCC, upon petition, could 
consider adopting a mandatory order. 

2. 
Recalling preprogrammed wireless phones. While an 
FCC order would address all future wireless manufacturing, a 
recall would resolve the issue of the millions of phones that 
currently cause phantom calls. Product recall could be 
narrowly tailored to those models responsible, although 
manufacturers should have the burden of determining 
whether their phones cause the problem. Either the 
manufacturers or the FCC could prompt the recall. 
3. 
Underwriting and distributing phone button guards. 


Private entrepreneurs, recognizing the problem of phantom 
wireless calls, have developed button guards to reduce the 
accidental pressing of the 9 or 1 key, which causes certain 
phones to speed dial 911. Button guards also protect the 
redial key if 911 was the last number dialed. While this is less 
desirable than product recall, wireless manufacturers may find 
it a less costly alternative for addressing phones currently in 
circulation. 

4. Prohibiting automatic 911 dialing. This approach should 
be tailored to ban wireless manufacturers from 
preprogramming phones. Several states and parts of Canada 
prohibit automatic 911 dialing. However, the laws have not 
been used to change phone manufacturers' autodialing 
programming practices.5 Enacting a federal law could be 
politically difficult, but it would be the most efficient way to 
address the problem; an FCC order could accomplish this, as 
well. Those states that already have legislation banning 
landline automatic dialing of 911 could revise their laws to 
also include a specific ban on the preprogramming of wireless 
units. While there are some advantages for individual users to 
have 911 pre-programmed, the burden of and delay caused by 
phantom calls on the 911 system outweighs the benefits.

 For example, see the Stop 
Accidental Calls website at 
www.StopAccidentalCalls.com.  


In Loves Park, if someone unintentionally speed dials 911, 
the operator tells the caller that he or she could be 
prosecuted for doing so, since 911 speed dialing is 
prohibited there. 

5. Funneling phantom wireless calls through an 
automated 911-answering system. In January 2001, the 
California Highway Patrol piloted a trial method for reducing 
phantom wireless calls in the Golden Gate area. During peak 
911 calling times, if dispatchers determined no one was on 
the line, they switched the call to a separate queue, and an 
automated attendant asked the caller to press any number (or 
to say yes) if an emergency existed. If the caller did not press 
a number or say yes after the message played twice, the call 
was terminated. 

During the five-week trial, the average waiting time for a 
dispatcher to answer a 911 call dropped from 93 seconds to 
eight seconds. However, lawyers for one of the wireless 
carriers objected, suggesting they might sue, and 
representatives of the deaf community asserted that the 
system was not friendly to the community's needs. The 
Highway Patrol ultimately abandoned the project. 


 For additional information on this 
initiative, contact Diane Chupinski at 
dchupinski@chp.ca.gov. 

 Telecommunications devices for 
the deaf, commonly referred to as 
TTY, send out certain tones that 911 
center computers recognize, allowing 
for written responses. However, these 
devices cannot be used with wireless 
phones. 

The United Kingdom has instituted a similar initiative, 
dubbed "Silent Solution." Cellular calls are answered with an 
automated message: "If you require any of the emergency 
services, press 5 on your keypad two times now." If the caller 
does not do so, the recording resumes: "Nothing has been 
heard. Operator, please release the line." If the caller presses 
55, the automated attendant immediately reroutes the call to 
the police on the highest-priority line, and it is the next to be 
answered.6 Using this system, U.K. emergency 



communications officials discovered that of the more than 
14,000 cellular calls to 999 per day, only about 25 are true 
emergencies. 

If wireless carriers remain unresponsive to the FCC's request, 
and to police requests for reform, police agencies could use a 
funneled phantom call system. This approach requires some 
refinement to address the deaf community's needs. In 
addition, it would be wise (although difficult) to prenotify the 
area's wireless users about the system. There is a slight risk 
that a wireless caller in a life-threatening situationsuch as 
someone being attackedcould not respond, and the call 
would be terminated. However, this risk also exists when no 
one responds to a 911 hang-up from a pay phone call, and a 
number of police agencies no longer dispatch officers to such 
calls. 

Responses to Phantom Wireless 911 Calls With 
Limited Effectiveness 

6. Dispatching officers to all phantom wireless calls. 

Many 911 centers try to determine if a phantom wireless call 
is truly an emergency. In most cases, no one is on the line. In 
other cases, the operator can hear someone talking to 
someone nearby. By listening to the conversation, the 
operator can determine whether the call was intentional. If it 
remains unclear whether the call is an emergency, many 
departments attempt callbacks using caller ID. If they cannot 
determine the caller's number, and there is any indication that 
an emergency exists, some 911 centers contact the caller's 
phone carrier to request a callback number. However, some 
phone carriers will not provide a number without a warrant. 
With the commencement of Enhanced 911, Phase II, 911 
centers will have to determine whether they will dispatch to 


phantom call locations. If they adopt this approach, the drain 
on police resources could be enormous. For instance, the 
California Highway Patrol estimates it would potentially need 
twice its current number of officers to respond to the 1.8 
million to 3.6 million phantom calls it receives annually. 

7. Requesting that wireless carriers address phantom 
calls. In December 2001, the National Emergency Number 
Association notified 21 wireless carriers that they should 
correct the phantom call problem, and forwarded a copy of 
the notification letter to the FCC. The association requested 
that carriers direct their phone manufacturers to remove or 
neutralize the 911 autodial feature "as quickly as possible." It 
also requested that wireless carriers direct retailers to turn 911 
autodial programs off, issue public service warnings and fliers 
to alert phone owners about the phantom calls resulting from 
the 911 autodial pre-programming, and itemize all 911 calls in 
customer billing statements.7 

Several years ago, officials from the California Highway Patrol 
and the Reno, Nevada, Police Department separately met with 
carriers whose phones made phantom calls. Several carriers 
changed their handset designs. Some agreed to stop 
preprogramming their phones to autodial 911; however, many 
have not done so. The Highway Patrol had greater success 
than the Reno police. Only one carrier agreed to meet with 
Reno officials to discuss the issue, and that carrier did not 
have the largest share of Reno's wireless market. Handset 
manufacturers rejected the idea of a product recall, and phone 
owners can still program their phones to autodial 911. The 
yearly increase in wireless users, coupled with the use of older 
phones that make phantom calls, has offset any gains achieved 
by the few manufacturers who no longer preprogram phones. 




A more coordinated effort involving national police 
organizations and the FCC may be needed to effectively 
address the problem. 

Responses to 911 Misdials and Hang-Up Calls 

8. Educating the public. Public education could reduce 911 
misdials and hang-up calls. For misdials of the international 
access number and area codes similar to 911, police could 
tailor efforts to specific populations. For instance, if elderly 
citizens using landlines are responsible for a majority of 
misdials, police could encourage them to put commonly called 
numbersbut not 911on speed dial. As another example, 
police might persuade pay phone companies in areas with 
large immigrant populations to put stickers that list the 
international access number on their phones. If callers are 
hanging up after misdialing 911 (causing operators to 
needlessly make callbacks and dispatch officers), then 
stressing the importance of staying on the line to the public 
would be valuable. A frequent shortcoming of public 
information campaigns is the initiating agency's failure to 
determine whether the effort actually reduced calls in the 
targeted category (area code misdials, pay phone hang-ups, 
etc.). Without measurement, it will be unclear if the initiative 
actually worked. While public education efforts may prove 
worthwhile if tailored to specific offending populations, if 
problems recur, more refined efforts may be required. 

 Putting 911 on speed dial increases 
the risk of misdials due to accidental 
pressing of the button. 

 Some people mistakenly dial 911 
instead of 011 (the international 
access code) when phoning someone 
in a foreign country. 

 Several years ago, a police agency 
employed a clown to visit elementary 
schools to teach children how to use 
911 correctly. Thereafter, some 
children called 911 to speak to the 
clown. 

Pinellas County employs a 911 public educator to address the 
misuse and abuse problems arising from its more than 500,000 
annual 911 calls. Misdials and hang-ups accounted for over 10 
percent of all 911 calls. The educator found, from a study in one of 
the county's cities, that children were responsible for only 10 percent 
of the misdials and hang-up calls, so efforts were geared toward 
adults. The initiative reduced the average annual number of misdials 
and hang-up calls by more than 12,000 over a three-year period. 

 For more information about 
Pinellas County 911 and the public 
educator's role, contact 
ed911@aol.com. 


9. Dispatching officers to landline hang-up calls only 
when there is evidence of an emergency. Many, but not 
all, 911 centers call landline hang-up numbers back (if their 
system can provide the numbers). If the operator is 
unsatisfied with the reason given for the hang-up, the line is 
open or no one answers, the operator usually dispatches an 
officer. If the line is open, 911 centers often dispatch medical 
personnel and, sometimes, fire personnel as well. If the line is 
busy, some 911 centers, such as that in Hopkins County, 
Kentucky, contact the local telephone operator to determine if 
there is a conversation on the line. If so, dispatchers do not 
send out an officer, reasoning that a conversation indicates 
the caller probably dialed 911 by accident.8 Some agencies, 
such as the South San Francisco Police Department, check the 
call history for the address to determine if there have been 
previous 911 hang-ups.9 In some cases, operators can 
determine that "playing on the phone" caused the call. Upon 
learning this, a handful of police agencies send a 911 
information packet to the home, including a warning that 
there will be a fine for any subsequent false calls.10 In the vast 
majority of cases, no emergency call was intended. Limiting 
dispatch to only those locations where there is evidence of an 
emergency minimizes the number of unfounded calls that 
police must handle. If police dispatch to a home where there 
is no evidence of an emergency, and entry is refused, there 
may not be probable cause to enter the home without a 
warrant; a refusal alone is probably insufficient to establish 
probable cause for entering. Police agencies should check with 
their legal advisor regarding this issue, to help refine dispatch 
policies. 


Responses to 911 Hang-Up Calls With Limited 
Effectiveness 

10. 
Dispatching officers to all landline hang-up calls.A 
handful of 911 centers treat all hang-up calls as emergencies 
requiring immediate investigation. Operators do not call back, 
in case a criminal answers the phone. Instead, they 
immediately dispatch police in hopes of catching a criminal by 
surprise.11 In the vast majority of cases, police find that no 
crime has occurred. 
11. 
Providing no response to pay phone hang-up calls. 
Because so many 911 pay phone hang-up calls are unfounded, 
some police agencies, including the Reno Police Department, 
do not dispatch officers to the locations unless there is 
evidence of trouble (such as screaming). Instead, they send 
out a general alert to officers in the field. While this approach 
frees officers for true emergencies, it does not fully address 
the underlying causes for the hang-ups. 


Responses to Nonemergency 911 Calls 

12. Implementing 311 systems. Some cities, overburdened 
with nonemergency 911 calls, adopt 311 systems to address 
this problem. Over the past five years, cities such as 
Baltimore, with assistance from the federal government, have 
adopted such systems to divert and handle nonemergency 
calls.12 Such systems may also reduce the number of 
abandoned calls from callers failing to wait for a 911 operator 
to answer, since they can shorten call pick-up times. 


13. Educating the public via 911 educators or 
coordinators. As an alternative to adopting a 311 system, 
some jurisdictions, such as Pinellas County, hire a public 
educator or coordinator to teach the public about the 
correctemergency-onlyuse of 911. This approach does not 
require additional dispatchers and equipment, as the 311 
systems do, so for many jurisdictions, it is an affordable 
alternative. 

Responses to Prank 911 Calls 

14. Targeting violators and applying graduated sanctions. 

Police can send information packets to first-time 911 abusers, 
as they do in Wakefield, Massachusetts,13 but if calls persist, a 
system of graduated sanctions, such as fines, could be of 
value. In many communities, making false or harassing 911 
calls is a prosecutable offense, punishable with a fine or jail 
time. For callers who repeatedly dial 911 (without a good 
reason), or parents whose children repeatedly call 911 while 
"playing on the phone," civil fines are more appropriate than 
criminal sanctions, since most prosecutors will neither 
prosecute nor seek jail time for the offenses. Generally, 
prosecutors file on 911 offenses in only the most egregious 
cases unless a different arrangement is agreed upon between 
the police and the prosecutor. A number of 911 centers 
provide public education programs or public service 
announcements to reduce 911 misuse and abuse, such as 
hang-up calls from children "playing on the phone." For 
instance, in Franklin County, Ohio, a public service 
announcement made clear to children that with the advent of 
E911 "we know where you are" when you call 911; prank calls 
declined as a result. Police can also target specific phones 
from which prank calls are made. 

 In Marion County, Mo., first-time 
violators receive a letter describing 
the call, as well as information on 
what constitutes a true emergency. 
Second-time violators are informed 
that they will face prosecution if 
another false or nonemergency call 
occurs; the county's prosecuting 
attorney has agreed to follow 
through in such cases. 


In 1994, San Diego police Officers Patti Clayton, Bob Smith and Miguel 
Flores, and Sgts. David Contreras and Rudy Tai, noticed that a high volume of 
911 hang-up calls were coming from pay phones in the 700 block of East San 
Ysidro Boulevard, in the city's Southern Division. This area abuts Mexico and 
has the busiest border crossing in the worldmore than 70,000 vehicles and 
pedestrians cross during an average day. Due to this heavy border traffic, 
officers were sometimes spending over an hour responding to the calls, 
invariably finding no reason for them. 

Officer Clayton surveilled the 20 pay phones on the block, phones belonging 
to six different owners. She also spoke with community members, taxi and bus 
drivers, and business owners, and determined three main causes for the hang-
ups: 

1. 
Diversionary calls. Unlicensed taxi drivers, called "wildcatters," were 
calling 911 from the phones and hanging up to divert police away from their 
passenger pick-up points, several blocks away at the border. Drug dealers were 
also making diversionary 911 calls from the phones. 
2. 
Prank calls. Late-night revelers returning to the United States from Mexico 
were calling 911 and hanging up as they passed by the phones. 
3. 
Misdials of the international access number. Upon arriving in the 
United States, some Mexican travelers, using the phones to call their families, 
were misdialing 911 instead of dialing 011, the international access number. 


The police team met with business owners, alerting them to the severity of the 
problem. The owners, realizing that police were being diverted from crime-
ridden areas to respond to the false calls, agreed to remove 10 of the phones 
and to relocate several others. Officer Clayton installed signs above the phones 
that read, "It is a crime to dial 911 to make a false police report." With the 
owners' consent, she also posted "no loitering" signs next to the phones. The 
sign messages are in both English and Spanish. 

To address Mexican travelers' misdialing, the team asked the phone 
manufacturer to install differently shaped 9 keys in the phones, but this proved 
cost-prohibitive. As an alternative, Officer Clayton painted all the 9 keys red, 
and repainted them weekly to make up for wear and tear. 

As a result of the team's efforts, the number of 911 calls from the phones 
dropped by 50 percent. The initiative also resulted in lower response times to 
other calls. 


15. Applying crime prevention through environmental 
design (CPTED) to hot-spot pay phones. Different pay 
phonesfor different reasonsbecome hot spots for false 911 
calls. After reviewing at least six months' worth of pay-phone  
call data for trends, 911 centers should give officers a list of  
false-call hot spots for follow-up analysis. In designing place- 
specific responses, officers should consider using CPTED principles, 
including increasing natural surveillance and
limiting or monitoring access. CPTED measures such as  
relocating phones to improve an owner's ability to monitor 
them, trimming obstructing trees and shrubbery, and 
removing obstacles such as dumpsters, barriers and benches 
can prove effective. 

By analyzing 911 hot-spot data, St. Petersburg, Florida, police 
Sergeant Charles Burnette determined that pay phones near a 
convenience store had accounted for 71 hang-up or "playing on the 
phone" calls over a five-year period. The call times coincided with 
the time students were released from school. Sgt. Burnette noted 
that foliage blocked natural surveillance of the phones, and that the 
phones were unlit, compounding the problem. He met with store 
management, who agreed to monitor the phones, and asked city 
staff to trim the obstructing foliage and install lights by the phones. 
As a result of this initiative, the false calls stopped. 

Sgt. Burnette reviewed other pay phone hot-spots and during his 
analysis discovered that five percent of all of St. Petersburg's 911 
calls were either hang-up or "playing on the phone" calls. Pay phone 
calls appeared to account for some of the problem. Because the 
calls did not cluster solely around student release times, Sgt. 
Burnette surmised that adults were also responsible. He 
recommended CPTED surveys of pay phones and developed an 
ordinance requiring that phones be maintained to CPTED 
standards. The ordinance also requires that signs notifying callers of 
the penalties for 911 misuse be posted near pay phones, and 
provides a fine structure for phone owners who violate the 
ordinance. At the time of this writing, the ordinance remains under 
consideration. 

 The convenience store owner
initially had the phones placed on the
property's perimeter, rather than near
the store's entrance, to discourage
loitering. However, the phones'
remoteness, along with the
obstructing foliage, prevented the
staff from monitoring them.


16. Having property overseers monitor hot-spot pay 
phones. In some jurisdictions, 911 centers ask property 
overseers to check whether pay phone calls are true 
emergencies. For example, the Loves Park 911 supervisor 
found a pattern of repeat hang-up calls from pay phones in 
the city's malls, bowling alleys and schools. Now, if 911 
dispatchers receive a hang-up call from one of these locations, 
they will not dispatch officers unless they have received 
confirmation of an emergency from mall security, bowling 
alley management or school administrators. If kids are 
"playing on the phone," the property overseers notify the 
police, who then respond to arrest the youth. Twelve percent 
of all 911 hang-up calls there are now handled this way. If 
particular pay phones are hot spots for hang-up or 
diversionary calls, police should determine who owns the 
phones (and who manages the property), and request their 
oversight in preventing the problem. 

Response to Exaggerated Emergency 911 Calls 

17. Targeting education to the people responsible. It is 
worthwhile for 911 centers to identify people who make 
exaggerated emergency calls, and to inform them about the 
associated costs and hazards. People who live or work in areas 
with particularly severe crime problems, such as open-air drug 
or prostitution markets, sometimes make such calls out of 
fear and frustration, believing that a quick police response is 
essential. Rather than educating these callers individually, it 
may be more economical to do so in a group format (perhaps 
in a block meeting). Police should come prepared with 
alternative ways to address the problem(s) prompting the 
original 911 calls. In addition, police should monitor any 
future calls from the targeted group to determine if education 
efforts have resolved the matter, or if more coercive remedies, 
such as fines or other sanctions, are necessary. 


Response to Lonely Complainant 911 Calls 

18. Arranging for suitable company for the callers. In 
many cases involving lonely complainants, the caller is not a 
danger to him- or herself or to others, and thus fails to 
qualify for emergency mental health services. Less coercive 
measures are more appropriate in such situations. Time-
consuming though it may be, if calls are frequent, arranging 
for professionals such as mental health or social service 
workers to assess callers and their circumstances will serve 
police interests. In some cases, informing the caller's family 
members about the problem may lead to increased monitoring 
of the caller's behavior. Alternatively, representatives from 
social service, charitable or faith-based organizations might 
agree to regularly visit the caller. Ultimately, however, constant 
911 calls about imagined emergencies or fabricated ones (as a 
means of securing company) may indicate that the caller 
should no longer live alone, and may find more comfort in an 
assisted living facility. 


Appendix 

Appendix: Summary of Responses to 
Misuse and Abuse of 911 

The table below summarizes the responses to misuse and 
abuse of 911, the mechanism by which they are intended to 
work, the conditions under which they ought to work best, 
and some factors you should consider before implementing a 
particular response. It is critical that you tailor responses to 
local circumstances, and that you can justify each response 
based on reliable analysis. In most cases, an effective strategy 
will involve implementing several different responses. Law 
enforcement responses alone are seldom effective in reducing 
or solving the problem. 

Response Page No. Response How It Works Considerations 
No. Works Best If 
Responses to Phantom Wireless 911Calls1. 13 Requiring 
manufacturers to 
redesign wirelessphones 
Makes phonesless susceptible tophantom calls 
police agencies, 
police chief and 
sheriff 
organizations, 
NENA, and other 
Financial costs to 
the wireless 
industry may be 
significant 
interested parties 
collaborate to 
petition the FCCusing accurate, 
recent data 
2. 14 Recalling 
preprogrammed 
wireless phones 
Addresses phonesalready on themarket 
narrowly tailoredto those phonemakes and models 
causing the problem 
Financial costs to 
the wireless 
industry may be 
significant 
3. 14 Underwriting anddistributingphone buttonguards 
Prevents 
unintentional 
speed dialing andredialing of 911 
wireless 
manufacturers payfor and distribute 
the guards, 
encourage wireless 
owners to use them, 
and provide a publicassessment of their 
Financial costs to 
the wireless 
industry may be 
significant 
effectiveness in 
reducing theproblem 


Response Page No. Response How It Works Considerations 
No. Works Best If 
4. 14 Prohibitingautomatic 911 
dialing 
Federal law would 
prohibit thepreprogramming 
of phones toautodial 911; state 
federal law 
targets 
manufacturers, 
not phoneowners; and state 
If there is resistance 
to a federal law, an 
FCC order may serve 
the purpose; police 
chiefs in each state 
law would 
prohibit the useof 911 autodial 
law targets 
owners, allowing 
for graduated 
sanctions against 
repeat violators 
may need tocollaborate to ensure 
that state laws are 
enacted; police may 
find it difficult to 
persuade certain 
groups (such as the 
elderly) not to use911 autodial 
5. 15 Funnelingphantom wirelesscalls through anautomated 911answering 
system 
Allows 
dispatchers to 
more quicklyrespond to calls 
the FCC 
supports this 
approach 
May requirerefinement so as not 
to adversely affectthe deaf; may alsorequire sometargeted publiceducation; if wireless 
manufacturers 
support this 
approach over others 
more costly to them,
they should bear thecost of informingcustomers about how 
it works, and release 
the police fromliability for using it 


29 

Response Page No. Response How It Works Considerations 
No. Works Best If 
Responses to Phantom 911Wireless Calls With Limited fectiveness Ef6. 16 Dispatching 
officers to all 
phantom wireless 
calls 
Officers respond 
to all identifiable 
phantom call 
locations 
the police 
agency has a low 
call load 
Reduces the time 
officers have to 
address verifiable 
crime and safety 
problems; once 
Enhanced 911, 
Phase II, is fully 
implemented, the 
number of 
identifiable 
phantom call 
locations will 
increase, as will the 
number of 
unwarranted 
dispatches 
7. 17 Requesting that 
wireless carriers 
address phantom 
calls 
Police and other 
organizations ask 
wireless carriers 
to voluntarily 
address the 
problem 
the 
organizations 
requesting the 
voluntary 
compliance notify 
the FCC that they 
have done so 
Collaborative efforts 
may be difficult and 
take time, and 
voluntary requests 
have, thus far, 
proven ineffective 
Responses to 911 Misdials and Hang-up Calls8. 18 Educating the 
public 
Encourages 
people to dial 
carefully and to 
stay on the line if 
they accidentally 
call 911 
911 centers 
track causes of 
misdials and 
hang-ups 
General 
campaignsas 
opposed to 
narrowly tailored 
onesare unlikely to 
correct the problem 
of misdials; 
education efforts 
should be 
customized, then 
assessed for 
effectiveness 


Response Page No. Response How It Works Considerations 
No. Works Best If 
9. 19 Dispatchingofficers to 
landline hang-upcalls only whenthere is evidence 
of an emergency 
Reduces the 
number of 
unfounded calls 
that police must 
handle 
911 centers 
follow up onhang-ups bysending callersinformation 
packets, and 
graduated 
sanctions apply torepeat violators 
Informing thepublic about theextent to which 
hang-up calls drainpolice resourcesmay help police 
avoid politicalfallout for 
responding onlywhen there is 
evidence of an 
emergency; it mayhelp to let citizensknow that manypolice departments 
now make callbacks, 
a more efficient and 
effective practicethan automaticallyresponding to hang-
ups 
Responses to 911 Hang-Up Calls With Limited Effectiveness10. 20 Dispatchingofficers to all 
landline hang-upcalls 
Gives police the 
opportunity to 
catch criminals by 
surprise, since 
operators do notcall numbers back 
a large number 
of hang-up callsare made bypeople phoningpolice to alert 
them to a crime 
Most landline hang-
up calls can beresolved without 
dispatching officers 
before dispatching 
them 
in progress; 
however, this is 
not the case 
11. 20 Providing no 
response to payphone hang-upcalls 
Dispatchers issue 
a general alert to 
officers in the 
field, but do not 
dispatch them to 
the scene unless 
property 
overseers monitor 
pay phones 
Requires property 
overseers' 
cooperation 
there is evidence 
of an emergency 


31 

Response Page No. Response How It Works Considerations 
No. Works Best If 
Responses to Nonemergency 911 Calls 
12. 20 Implementing311 systems 
Reduces demands 
on 911 systems;
reduces caller 
frustration 
adequate fundsare available for 
311 technology 
and staffing 
Start-up andmaintenance costs 
may be significant 
13. 21 Educating thepublic via 911educators or 
coordinators 
Teaches citizens 
to use 911 
appropriately 
educational 
initiatives address 
each aspect of911 misuse and 
Less costly thanimplementing 311 
systems 
abuse 
Responses to Prank 911 Calls14. 21 Targetingviolators and 
applyinggraduated 
sanctions 
Persuades callers 
to use 911 
appropriately 
efforts are 
specificallytailored to 
problem peopleand phones, 
rather than overly 
broad 
Civil sanctions 
require a system forcollecting fines;
fines could be used 
to support 
additional 911 
educational efforts 
15. 23 Applying crimeprevention 
throughenvironmental 
design (CPTED)
to hot-spot pay 
phones 
Decreases the 
potential forprank 911 callsfrom these 
phones 
officers are 
trained in 
CPTED 
principles andtechniques 
Some phones mayneed to be relocated 
(or removed), which 
can have financial 
implications for the 
owners 
16. 24 Having property 
overseers monitor 
hot-spot pay 
phones 
Shifts 
responsibility formonitoringphones to thosewho are better 
able to do so 
police have 
carefully analyzedthe problem athot-spot locationsand are willing toeducate property 
overseers 
Some places, such 
as schools, may not 
have enough staffto monitor phones, 
and may resistphone relocationunless convinced of 
the seriousness of 
the problem 


Response Page No. Response How It Works Considerations 
No. Works Best If 
Response to Exaggerated Emergency 911 Calls 
17. 24 Targetingeducation to the 
peopleresponsible 
Persuades citizens 
to use 911 
appropriately;
policeacknowledge and 
address the 
underlyingconcerns that 
prompt theoriginal 911 calls 
911 centers can 
identify specificblocks making the 
calls 
Requires 911centers to identifycalls that initiallyreceive a priority 
response, but are 
subsequentlydowngraded in 
priority once policearrive and assess the 
situation 
Response to Lonely Complainant 911 Calls18. 25 Arranging forsuitable companyfor the callers 
Reduces callers' 
motivations to call 
911 
inappropriately 
familymembers or 
suitable local 
services are 
available 
Callers may resist 
assistance; may betime-consuming toensure appropriatemeasures are taken 


Endnotes 

Dunsworth, (2000).
National Emergency Number Association (2001).
National Emergency Number Association (2001).
Federal Communications Commission (1999).
Halifax Regional Fire and Emergency Service (2002).
London Metropolitan Police (2001).
Hixson (2001).
Larson (1998).
Larson (1998).
Hannibal Courier-Post (1997).
Larson (1998).
Office of Community Oriented Policing Services (2000).
Wakefield Police Department (1992).



References 

Dunworth, T. (2000). "Criminal Justice and the IT 
Revolution." In J. Horney (ed.), Policies, Processes and Decisions of 
the Criminal Justice System: Criminal Justice 2000. Washington, 
D.C.: U.S. Department of Justice, National Institute of Justice. 

Federal Communications Commission (1999). FCC Docket 
No. 94-102, adopted May 13 and released June 9. Available at 
www.fcc.gov/Bureaus/Wireless/Orders/1999/fcc99096.txt 

Halifax Regional Fire and Emergency Service (2002). 
Available at 
www.region.halifax.ns.ca/Fire/pages/911qanda3.html 

Hannibal Courier-Post (1997). "Board Warns Against False 911 
Calls," Dec. 18. Available at 
www.hannibal.net/stories/121897/false911.html 

Hixson, R. (2001). National Emergency Number Association 
letter to 21 wireless carriers, Dec. 12. Available at 
www.nena.org 

Larson, R. (1998). "9-1-1 Hangups." 9-1-1 Magazine 
(September/October). Available at www.9-1-1magazine.com 

London Metropolitan Police (2001). "Silent Solution for 999 
Mobile Telephone Calls Without Service Request." Press 
release, Nov. 12. 

Ma, K. (2001). "Frivolous 911 Calls Drain Sheriff's 
Resources." North County Times, The Californian, Feb. 19. 
Available at www.nctimes.com 


National Emergency Number Association (2001). "Report 
Card to the Nation," Sept. 11. Available at www.nena9-1-1.org 

Office of Community Oriented Policing Services (2000). 311 
for Nonemergencies: Helping Communities One Call at a Time. 

Washington, D.C.: U.S. Department of Justice, Office of 
Community Oriented Policing Services. 

Tangonan, S. (2000). "911 Service Burdened by Casual Use." 
The Courier-Journal, July 22. Available at 
www.courier-journal.com 

Wakefield Police Department (1992). "E-911: Chapter 112 of 
the Wakefield Code." Available at 
www.wakefieldpd.org/bylaw-911.htm 


About the Author 

Rana Sampson 

Rana Sampson is a national problem-oriented policing 
consultant and the former director of public safety for the 
University of San Diego. She was previously a White House 
Fellow; National Institute of Justice Fellow; senior researcher 
and trainer at the Police Executive Research Forum; attorney; 
and patrol officer, undercover narcotics officer and patrol 
sergeant with the New York City Police Department, where 
she was awarded several commendations of merit and won 
the National Improvement of Justice Award. She is the 
coauthor (with Michael Scott) of Tackling Crime and Other 
Public-Safety Problems: Case Studies in Problem-Solving, which 
documents high-quality crime control efforts from around the 
United States, Canada and Europe. She is a judge for the 
Herman Goldstein Award for Excellence in Problem-
Oriented Policing, a former judge for the police Fulbright 
awards, and a commissioner with California's Commission on 
Peace Officer Standards and Training. Sampson holds a law 
degree from Harvard and a bachelor's degree from Barnard 
College, Columbia University. 


Recommended Readings 

 
A Police Guide to Surveying Citizens and Their 
Environments, Bureau of Justice Assistance, 1993. This 
guide offers a practical introduction for police practitioners 
to two types of surveys that police find useful: surveying 
public opinion and surveying the physical environment. It 
provides guidance on whether and how to conduct cost-
effective surveys. 
 
Assessing Responses to Problems: An 
Introductory Guide for Police Problem-Solvers, by 
John E. Eck (U.S. Department of Justice, Office of 
Community Oriented Policing Services, 2001). This guide is 
a companion to the Problem-Oriented Guides for Police series. It 
provides basic guidance to measuring and assessing 
problem-oriented policing efforts. 
 
Conducting Community Surveys, by Deborah Weisel 
(Bureau of Justice Statistics and Office of Community 
Oriented Policing Services, 1999). This guide, along with 
accompanying computer software, provides practical, basic 
pointers for police in conducting community surveys. The 
document is also available at www.ojp.usdoj.gov/bjs. 
 
Crime Prevention Studies, edited by Ronald V. Clarke 
(Criminal Justice Press, 1993, et seq.). This is a series of 
volumes of applied and theoretical research on reducing 
opportunities for crime. Many chapters are evaluations of 
initiatives to reduce specific crime and disorder problems. 



 
Excellence in Problem-Oriented Policing:The 1999 
Herman Goldstein Award Winners. This document 
produced by the National Institute of Justice in 
collaboration with the Office of Community Oriented 
Policing Services and the Police Executive Research Forum 
provides detailed reports of the best submissions to the 
annual award program that recognizes exemplary problem-
oriented responses to various community problems. A 
similar publication is available for the award winners from 
subsequent years. The documents are also available at 
www.ojp.usdoj.gov/nij. 
 
Not Rocket Science? Problem-Solving and Crime 
Reduction, by Tim Read and Nick Tilley (Home Office 
Crime Reduction Research Series, 2000). Identifies and 
describes the factors that make problem-solving effective or 
ineffective as it is being practiced in police forces in 
England and Wales. 
 
Opportunity Makes the Thief: Practical Theory for 
Crime Prevention, by Marcus Felson and Ronald V. 
Clarke (Home Office Police Research Series, Paper No. 98, 
1998). Explains how crime theories such as routine activity 
theory, rational choice theory and crime pattern theory have 
practical implications for the police in their efforts to 
prevent crime. 
 
Problem Analysis in Policing, by Rachel Boba (Police 
Foundation, 2003). Introduces and defines problem analysis 
and provides guidance on how problem analysis can be 
integrated and institutionalized into modern policing 
practices. 



Recommended Readings 

 
Problem-Oriented Policing, by Herman Goldstein 
(McGraw-Hill, 1990, and Temple University Press, 1990). 
Explains the principles and methods of problem-oriented 
policing, provides examples of it in practice, and discusses 
how a police agency can implement the concept. 
 
Problem-Oriented Policing and Crime Prevention, 
by Anthony A. Braga (Criminal Justice Press, 2003). 
Provides a through review of significant policing research 
about problem places, high-activity offenders, and repeat 
victims, with a focus on the applicability of those findings 
to problem-oriented policing. Explains how police 
departments can facilitate problem-oriented policing by 
improving crime analysis, measuring performance, and 
securing productive partnerships. 
 
Problem-Oriented Policing: Reflections on the 
First 20 Years, by Michael S. Scott (U.S. Department of 
Justice, Office of Community Oriented Policing Services, 
2000). Describes how the most critical elements of 
Herman Goldstein's problem-oriented policing model have 
developed in practice over its 20-year history, and proposes 
future directions for problem-oriented policing. The report 
is also available at www.cops.usdoj.gov. 
 
Problem-Solving: Problem-Oriented Policing in 
Newport News, by John E. Eck and William Spelman 
(Police Executive Research Forum, 1987). Explains the 
rationale behind problem-oriented policing and the 
problem-solving process, and provides examples of 
effective problem-solving in one agency. 



 
Problem-Solving Tips: A Guide to Reducing Crime 
and Disorder Through Problem-Solving 
Partnerships by Karin Schmerler, Matt Perkins, Scott 
Phillips, Tammy Rinehart and Meg Townsend. (U.S. 
Department of Justice, Office of Community Oriented 
Policing Services, 1998) (also available at 
www.cops.usdoj.gov). Provides a brief introduction to 
problem-solving, basic information on the SARA model 
and detailed suggestions about the problem-solving process. 
 
Situational Crime Prevention: Successful Case 
Studies, Second Edition, edited by Ronald V. Clarke 
(Harrow and Heston, 1997). Explains the principles and 
methods of situational crime prevention, and presents over 
20 case studies of effective crime prevention initiatives. 
 
Tackling Crime and Other Public-Safety Problems: 
Case Studies in Problem-Solving, by Rana Sampson 
and Michael S. Scott (U.S. Department of Justice, Office of 
Community Oriented Policing Services, 2000) (also available 
at www.cops.usdoj.gov). Presents case studies of effective 
police problem-solving on 18 types of crime and disorder 
problems. 
 
Using Analysis for Problem-Solving: A Guidebook 
for Law Enforcement, by Timothy S. Bynum (U.S. 
Department of Justice, Office of Community Oriented 
Policing Services, 2001). Provides an introduction for 
police to analyzing problems within the context of 
problem-oriented policing. 
 
Using Research: A Primer for Law Enforcement 
Managers, Second Edition, by John E. Eck and Nancy G. 
LaVigne (Police Executive Research Forum, 1994). Explains 
many of the basics of research as it applies to police 
management and problem-solving. 



Other Problem-Oriented Guides for Police 

Problem-Specific Guides series: 

1. 
Assaults in and Around Bars. Michael S. Scott. 2001. 
ISBN: 1-932582-00-2 
2. 
Street Prostitution. Michael S. Scott. 2001. ISBN: 1-932582-01-0 
3. 
Speeding in Residential Areas. Michael S. Scott. 2001. 
ISBN: 1-932582-02-9 
4. 
Drug Dealing in Privately Owned Apartment Complexes. 
Rana Sampson. 2001. ISBN: 1-932582-03-7 
5. 
False Burglar Alarms. Rana Sampson. 2001. ISBN: 1-932582-04-5 
6. 
Disorderly Youth in Public Places. Michael S. Scott. 2001. 
ISBN: 1-932582-05-3 
7. 
Loud Car Stereos. Michael S. Scott. 2001. ISBN: 1-932582-06-1 
8. 
Robbery at Automated Teller Machines. Michael S. Scott. 2001. 
ISBN: 1-932582-07-X 
9. 
Graffiti. Deborah Lamm Weisel. 2002. ISBN: 1-932582-08-8 
10. 
Thefts of and From Cars in Parking Facilities. Ronald V. 
Clarke. 2002. ISBN: 1-932582-09-6 
11. 
Shoplifting. Ronald V. Clarke. 2002. ISBN: 1-932582-10-X 
12. 
Bullying in Schools. Rana Sampson. 2002. ISBN: 1-932582-11-8 
13. 
Panhandling. Michael S. Scott. 2002. ISBN: 1-932582-12-6 
14. 
Rave Parties. Michael S. Scott. 2002. ISBN: 1-932582-13-4 
15. 
Burglary of Retail Establishments. Ronald V. Clarke. 2002. 
ISBN: 1-932582-14-2 
16. 
Clandestine Drug Labs. Michael S. Scott. 2002. 
ISBN: 1-932582-15-0 
17. 
Acquaintance Rape of College Students. Rana Sampson. 2002. 
ISBN: 1-932582-16-9 
18. 
Burglary of Single-Family Houses. Deborah Lamm Weisel. 
2002. ISBN: 1-932582-17-7 
19. 
Misuse and Abuse of 911. Rana Sampson. 2002. 
ISBN: 1-932582-18-5 



20. Financial Crimes Against the Elderly. 

Kelly Dedel Johnson. 2003. ISBN: 1-932582-22-3 

21. 
Check and Card Fraud. Graeme R. Newman. 2003. 
ISBN: 1-932582-27-4 
22. 
Stalking. The National Center for Victims of Crime. 2004. 
ISBN: 1-932582-30-4 
23. 
Gun Violence Among Serious Young Offenders. Anthony A. 
Braga. 2004. ISBN: 1-932582-31-2 
24. 
Prescription Fraud. Julie Wartell, Nancy G. La Vigne. 2004. 
ISBN: 1-932582-33-9 
25. 
Identity Theft. Graeme R. Newman. 2004 ISBN: 1-932582-35-5 
26. 
Crimes Against Tourists. Ronald W. Glensor, Kenneth J. Peak. 
2004 ISBN: 1-932582-36-3 


Response Guides series: 

 The Benefits and Consequences of Police Crackdowns. 

Michael S. Scott. 2003. ISBN: 1-932582-24-X 

Problem-Solving Tools series: 

 Assessing Responses to Problems: An Introductory Guide for 
Police Problem-Solvers. John E. Eck. 2002. ISBN: 1-932582-19-3 

Upcoming Problem-Oriented Guides for Police 

Problem-Specific Guides 
Disorder at Budget Motels 
Domestic Violence 
Mentally Ill Persons 
Robbery of Taxi Drivers 
Student Party Disturbances on College Campuses 
School Break-Ins 
Street Racing 


Other Problem-Oriented Guides for Police 

Bomb Threats in Schools 
Underage Drinking 
Open-Air Drug Markets 
Sexual Offenses in Public Places 
Drunk Driving 
Cruising 
Bank Robbery 

Response Guides 
Closing Streets and Alleys to Reduce Crime 

Problem-Solving Tools 
Repeat Victimization 
Using Offender Interviews to Inform Police Problem-Solving 

Other Related COPS Office Publications 

 
Using Analysis for Problem-Solving: A Guidebook 
for Law Enforcement. Timothy S. Bynum. 
 
Problem-Oriented Policing: Reflections on the First 
20 Years. Michael S. Scott. 2001. 
 
Tackling Crime and Other Public-Safety Problems: 
Case Studies in Problem-Solving. Rana Sampson and 
Michael S. Scott. 2000. 
 
Community Policing, Community Justice, and 
Restorative Justice: Exploring the Links for the 
Delivery of a Balanced Approach to Public Safety. 


Caroline G. Nicholl. 1999. 

 Toolbox for Implementing Restorative Justice and 
Advancing Community Policing. Caroline G. Nicholl. 
2000. 


 
Problem-Solving Tips: A Guide to Reducing 
Crime and Disorder Through Problem-Solving 
Partnerships. Karin Schmerler, Matt Perkins, Scott 
Phillips, Tammy Rinehart and Meg Townsend. 1998. 
 
Bringing Victims into Community Policing. The 
National Center for Victims of Crime and the Police 
Foundation. 2002. 
 
Call Management and Community Policing. Tom 
McEwen, Deborah Spence, Russell Wolff, Julie Wartell 
and Barbara Webster. 2003. 
 
Crime Analysis in America. Timothy C. OShea and 
Keith Nicholls. 2003. 
 
Problem Analysis in Policing. Rachel Boba. 2003. 
 
Reducing Theft at Construction Sites: Lessons 
From a Problem-Oriented Project. Ronald V. Clarke 
and Herman Goldstein. 2003. 
 
The COPS Collaboration Toolkit: How to Build, 
Fix, and Sustain Productive Partnerships. Gwen O. 
Briscoe, Anna T. Laszlo and Tammy A. Rinehart. 
2001. 
 
The Law Enforcement Tech Guide: How to plan, 
purchase and manage technology (successfully!). 


Kelly J. Harris and William H. Romesburg. 2002. 

 Theft From Cars in Center City Parking 
Facilities - A Case Study. Ronald V. Clarke and 
Herman Goldstein. 2003. 

For more information about the Problem-Oriented Guides for 
Police series and other COPS Office publications, please call 
the Department of Justice Response Center at 800.421.6770 
or visit COPS Online at www.cops.usdoj.gov. 


FOR MORE INFORMATION: 

U.S. Department of JusticeOffice of Community Oriented Policing Services 

1100 Vermont Avenue, N.W. 
Washington, D.C. 20530 

To obtain details on COPS programs, call the 
COPS Office Response Center at 800.421.6770 

Visit COPS Online at the address listed below. 

e06021603 Updated Date: July 15, 2004 
ISBN: 1-932582-18-5 

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www.cops.usdoj.gov