Version 1.0, 12/19/2012

U. S. Department of Justice

Federal Bureau of Investigation

Criminal Justice Information Services Division

Criminal Justice Information

Services Division

Uniform Crime Reporting Program

Hate Crime

Data Collection Guidelines 

and Training Manual

Version 1.0

Document Date: 12/19/2012

Prepared by:

Law Enforcement Support Section 

Crime Statistics Management Unit 

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CHANGE DESCRIPTIONS

Revision Change Description Created/Changed By Date Approved By

1.0 Initial Release
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PREFACE

The passage of the Matthew Shepard and James Byrd, Jr. Hate Crimes Prevention 

Act (the Act) in 2009 expanded the bias motivation definitions for hate crimes. The FBI’s 

Uniform Crime Reporting (UCR) Program, which collects and publishes information about 

crimes motivated by bias, has modified its data collection accordingly by including new and 

revised definitions, along with corresponding examples.

This publication, a merger of two earlier publications (Hate Crime Data 

Collection Guidelines and the Training Guide for Hate Crime Data Collection), reflects the 

changes in the Act and is intended to assist law enforcement agencies in collecting and 

submitting hate crime data to the FBI UCR Program, as well as establishing an updated hate 

crime training program for their personnel. In addition to providing suggested model reporting 

procedures and training aids for capturing the new bias motivations, the manual is written to 

raise law enforcement officers’ awareness of the hate crime problem. The FBI UCR Program is 

grateful to all who have assisted in preparing this publication.
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TABLE OF CONTENTS

I. Introduction............................................................................................1

II. Criteria of hate crime.................................................................................4

III. Definitions for hate crime data collection.........................................................8

IV. Scenarios of bias motivation.......................................................................12

V. Understanding how to distinguish sexual orientation, gender identity,

anti-transgender, and anti-gender non-conforming crimes....................................17

VI. Learning modules for defining and reporting hate crimes.....................................19

Learning module one: Bias-motivated crimes—definitions and procedures...............20

Module description

Course objectives

Definitions for hate crime data collection

Procedures and criteria

Learning module two: Case study exercises of possible bias-related crimes...............29

Module description

Course objectives

Rules for the exercise session

Exercise cases

Appendix I––Legislation....................................................................................34

Appendix II––Submitting hate crime data to the FBI UCR Program.................................37

Appendix III––UCR offense definitions..................................................................45

Appendix IV––UCR hate crime statistics data...........................................................51

Appendix V––OMB race definitions......................................................................52

Appendix VI––Organizations offering information concerning anti-bias education...............54

Appendix VII––Department of Justice, Community Relations Service, Regional Offices........56

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I. INTRODUCTION

Purpose and Scope

This manual is intended to assist law enforcement agencies in reporting incidents 

of hate crime to the FBI UCR Program. It addresses policy, the types of bias crime to be 

reported, how to identify a hate crime, and guidelines for reporting hate crime.

Since 1991, thousands of college and university, city, county, state, tribal, and 

federal law enforcement agencies have voluntarily participated in the hate crime data collection. 

It is the law enforcement officers within these agencies who investigate offenses, determine 

those motivated by bias, and report them as known hate crimes that have made crucial 

contributions to the success of the hate crime data collection. Without their continued support 

and participation in identifying bias-motivated crimes, the FBI would be unable to annually 

publish Hate Crime Statistics. This partnership and, ultimately, this publication serve as the 

cornerstone in raising the Nation’s awareness about the occurrence of bias-motivated offenses.

The Nature of Hate Crime

In his work entitled, Taking Rights Seriously, Ronald Dworkin, Ph.D., stated that 

“justice as fairness rests on the assumption of a natural right of all men and women to equality of 

concern and respect, a right they possess not by virtue of birth or characteristics or merit or 

excellence, but simply as human beings.” Dr. Dworkin’s words reflect the Constitutional 

protections that are guaranteed to all Americans. And yet, there are those who are victimized, 

sometimes subtly and other times very overtly, for no reason other than the color of their skin, 

the religion they profess, the heritage of their parents, the disability they possess, their sexual 

orientation, their gender, or their gender identity. Not only is the individual who is personally 

touched by these offenses victimized, but the entire class of individuals residing in the 

community is affected.

Background

A. Legislative Mandate to Report Hate Crime

In response to a growing concern about hate crimes, on April 23, 1990, Congress 

passed the Hate Crime Statistics Act. This law required the Attorney General to collect data 

“about crimes that manifest evidence of prejudice based on race, religion, sexual orientation, or 

ethnicity.” The Attorney General delegated the responsibilities of developing the procedures for 

implementing, collecting, and managing hate crime data to the Director of the FBI, who in turn 

assigned the tasks to the FBI UCR Program. Under the direction of the Attorney General and 

with the cooperation and assistance of many local and state law enforcement agencies, the FBI 

UCR Program created a hate crime data collection system to comply with the congressional 
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mandate. The FBI UCR Program’s first publication on the subject was Hate Crime Statistics, 

1990: A Resource Book, which was a compilation of hate crime data reported by 11 states that 

had collected them under state authority in 1990 and were willing to offer their data as a 

prototype. The program continued to work with agencies familiar with investigating hate crimes 

and collecting related information so it could develop and implement a more uniform method of 

data collection on a nationwide scale. Hate Crime Statistics, 1992, presented the first data 

reported by law enforcement agencies across the country that participated in the UCR hate crime 

data collection. Lawmakers then amended the Hate Crime Statistics Act to include bias against 

persons with disabilities by passing the Violent Crime and Law Enforcement Act of 1994 in 

September of that year. The FBI started gathering data for the additional bias type on January 1, 

1997. Next, the Church Arson Prevention Act, which was signed into law in July 1996, removed 

the sunset clause from the original statute and mandated that the hate crime data collection 

become a permanent part of the FBI UCR Program. Finally, in October 2009, the Matthew 

Shepard and James Byrd, Jr. Hate Crimes Prevention Act amended the Hate Crime Statistics Act

under Division E of P.L. 111-84, the National Defense Authorization Act for Fiscal Year 2010. 

As a result, the FBI UCR Program now captures statistics on hate crimes based on gender and 

gender identity prejudices, as well as hate crimes committed by/directed against juveniles. 

(Appendix I provides the referenced legislation as amended.)

B. Developing a Collection Approach

The primary emphasis in developing an approach for collecting national hate 

crime statistics was to avoid placing major new reporting burdens on law enforcement agencies 

contributing data to the FBI UCR Program. To accomplish this goal the following decisions 

were made:

1. The hate crime collection is an adjunct to the UCR collection. Hate crimes 

are not separate, distinct crimes, but rather traditional offenses motivated by the offender’s bias. 

For example, an offender may commit arson because of his or her racial bias. It is, therefore, 

unnecessary to create a whole new crime category. To the contrary, hate crime data can be 

collected by merely capturing additional information about offenses already being reported to the 

FBI UCR Program. Another reason for this approach is the fact that the FBI is in the process of 

upgrading the UCR Program from a tally system, known as the Summary Reporting System 

(SRS), to an incident-based system, known as the National Incident-Based Reporting System 

(NIBRS).

Law enforcement agencies reporting in the NIBRS use a data element within their 

reporting software that indicates the incident involved a bias motivation. These agencies can 

report considerably more information about the hate crime incident because the NIBRS is a 

comprehensive data collection. It enables law enforcement agencies to indicate whether any of 

the NIBRS offenses were bias motivated. (For a list of offenses collected via the NIBRS and 
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reported in conjunction with the data element indicating whether bias motivated the offense, see 

Appendix II. For the definition of those offenses collected in the NIBRS, see Appendix III.)

Agencies not yet participating in the NIBRS submit their hate crime data via the 

Hate Crime Incident Report and the Quarterly Hate Crime Report. The incident report captures 

the following information about each hate crime incident: the offense type and its respective 

bias motivation, the location of the incident, the number and type of victims, the number of 

known offenders, and the known offender’s race and ethnicity. (For a list of offense categories 

collected via the Hate Crime Incident Report in conjunction with the offender’s bias motivation, 

see Appendix II. For the definitions of those offenses collected on the Hate Crime Incident 

Report, see Appendix III.) To provide for the reporting of hate crimes committed by and/or 

directed against juveniles, the FBI has provided for law enforcement to indicate on the Hate 

Crime Incident Report if the victim and/or offender were under 18 years of age and/or 18 years 

of age and over. Information collected on the Hate Crime Incident Report can be submitted in an 

electronic format. The hate crime data submission specifications are provided in Hate Crime 

Electronic Submission Specifications for the Summary Reporting System, which is available at 

www.fbi.gov/about-us/cjis/ucr/hate-crime.

2. The types of bias motivation to be reported are limited. There are many kinds 

of bias. Some of the more common kinds are those against race, religion, disability, sexual 

orientation, ethnicity, gender, or gender identity. There are also biases against rich people, poor 

people, the elderly, people who dress differently, smokers, drinkers, people who are overweight, 

etc. The types of bias to be reported to the FBI UCR Program are limited to those mandated by 

the Hate Crime Statistics Act and its subsequent amendments, i.e., bias based on “race, religion, 

disability, sexual orientation, ethnicity, gender, or gender identity.”

Conclusion

The enactment of the Hate Crime Statistics Act of 1990 and its subsequent 

amendments requiring the collection and publication of nationwide hate crime statistics 

underscores the emphasis placed on hate crime. National statistics have resulted in greater 

awareness and understanding of the true dimensions of the problem nationwide. Those charged 

with the enforcement of the law will be better able to quantify their resource needs and direct 

available resources to the areas where they will have the most effectiveness. Likewise, 

community service organizations and groups will be better able to respond to the needs of the 

victims.
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II. CRITERIA OF HATE CRIME

A. Bias Motivation

The FBI collects hate crime data regarding criminal offenses motivated, in whole 

or in part, by the offender’s bias against a race, religion, disability, sexual orientation, ethnicity, 

gender, or gender identity. Due to the difficulty of ascertaining the offender’s subjective 

motivation, bias is to be reported only if investigation reveals sufficient objective facts to lead a 

reasonable and prudent person to conclude that the offender’s actions were motivated, in whole 

or in part, by bias. The specific types of bias to be reported, along with their UCR bias codes,

are listed below. (More information about some types of biases is provided in Learning Module 

Two.)

Race:

11 = Anti-White

12 = Anti-Black or African American

13 = Anti-American Indian or Alaska Native

14 = Anti-Asian

15 = Anti-Multiple Races, Group1

16 = Anti-Native Hawaiian or Other Pacific Islander

Religion:

21 = Anti-Jewish

22 = Anti-Catholic

23 = Anti-Protestant

24 = Anti-Islamic (Muslim)

25 = Anti-Other Religion

26 = Anti-Multiple Religions, Group1

27 = Anti-Atheism/Agnosticism

Ethnicity:

32 = Anti-Hispanic or Latino

33 = Anti-Not Hispanic or Latino

Sexual Orientation:

41 = Anti-Gay (Male)

42 = Anti-Lesbian

43 = Anti-Lesbian, Gay, Bisexual, or Transgender (Mixed Group)2

44 = Anti-Heterosexual

45 = Anti-Bisexual

__________________________________

1Report Anti-Multiple Races, Group if more than one victim in the incident is a different 

race. This also applies to the Anti-Multiple Religions, Group.

2

Lesbian, Gay, Bisexual, or Transgender is referred to as LGBT.
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Disability:

51 = Anti-Physical Disability

52 = Anti-Mental Disability

Gender:

61 = Anti-Male

62 = Anti-Female

Gender Identity:

71 = Anti-Transgender

72 = Anti-Gender Non-Conforming

B. Objective Evidence That the Crime was Motivated by Bias

An important distinction must be made when reporting a hate crime. The mere 

fact the offender is biased against the victim’s actual or perceived race, religion, disability, 

sexual orientation, ethnicity, gender, and/or gender identity does not mean that a hate crime was 

involved. Rather, the offender’s criminal act must have been motivated, in whole or in part, by 

his or her bias.

Motivation is subjective, therefore, it is difficult to know with certainty whether a 

crime was the result of the offender’s bias. For that reason, before an incident can be reported as 

a hate crime, sufficient objective facts must be present to lead a reasonable and prudent person to 

conclude that the offender’s actions were motivated, in whole or in part, by bias. While no 

single fact may be conclusive, facts such as the following, particularly when combined, are 

supportive of a finding of bias:

1. The offender and the victim were of a different race, religion, disability, sexual 

orientation, ethnicity, gender, and/or gender identity. For example, the victim was African 

American and the offender was white. 

2. Bias-related oral comments, written statements, or gestures were made by the 

offender which indicates the offender’s bias. For example, the offender shouted a racial epithet 

at the victim. 

3. Bias-related drawings, markings, symbols, or graffiti were left at the crime scene. 

For example, a swastika was painted on the door of a synagogue, mosque, or LGBT Center.

4. Certain objects, items, or things which indicate bias were used. For example, the 

offenders wore white sheets with hoods covering their faces or a burning cross was left in front 

of the victim’s residence. 
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5. The victim is a member of a specific group which is overwhelmingly 

outnumbered by other residents in the neighborhood where the victim lives and the incident took 

place.

6. The victim was visiting a neighborhood where previous hate crimes had been 

committed because of race, religion, disability, sexual orientation, ethnicity, gender, or gender 

identity and where tensions remained high against the victim’s group.

7. Several incidents occurred in the same locality, at or about the same time, and the 

victims were all of the same race, religion, disability, sexual orientation, ethnicity, gender, or 

gender identity. 

8. A substantial portion of the community where the crime occurred perceived that 

the incident was motivated by bias. 

9. The victim was engaged in activities related to his or her race, religion, disability, 

sexual orientation, ethnicity, gender, or gender identity. For example, the victim was a member 

of the National Association for the Advancement of Colored People (NAACP) or participated in 

an LGBT Pride celebration.

10. The incident coincided with a holiday or a date of particular significance relating 

to a race, religion, disability, sexual orientation, ethnicity, gender, or gender identity, e.g., Martin 

Luther King Day, Rosh Hashanah, or the Transgender Day of Remembrance (November 20).

11. The offender was previously involved in a similar hate crime or is a hate group 

member. 

12. There were indications that a hate group was involved. For example, a hate group 

claimed responsibility for the crime or was active in the neighborhood. 

13. A historically-established animosity existed between the victim’s and the 

offender’s groups. 

14. The victim, although not a member of the targeted racial, religious, disability, 

sexual orientation, ethnicity, gender, or gender identity group, was a member of an advocacy 

group supporting the victim group. 

C. Cautions

1. Need for Case-by-Case Assessment of the Facts—The aforementioned factors are 

not all-inclusive of the types of objective facts which evidence bias motivation. Therefore, 

reporting agencies must examine each case for facts which clearly provide evidence that the 

offender’s bias motivated him/her to commit the crime.
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2. Misleading Facts—Agencies must be alert to misleading facts. For example, the 

offender used an epithet to refer to the victim’s race, but the offender and victim were of the 

same race. 

3. Feigned Facts—Agencies must be alert to evidence left by the offenders which is 

meant to give the false impression that the incident was motivated by bias. For example, 

students of a religious school vandalize their own school, leaving anti-religious statements and 

symbols on its walls in the hope that they will be excused from attending class.

4. Offender’s Mistaken Perception—Even if the offender was mistaken about the 

victim’s race, religion, disability, sexual orientation, ethnicity, gender, or gender identity, the 

offense is still a hate crime as long as the offender was motivated, in whole or in part, by bias 

against that group. For example, a middle-aged, heterosexual man walking by a bar frequented 

by gay men was attacked by six teenagers who mistakenly believed the victim had left the bar 

and was gay. Although the offenders were wrong on both counts, the offense is a hate crime 

because it was motivated by the offenders’ anti-gay bias.

5. Changes in Findings of Bias—If, after an initial incident report was submitted, a 

contrary finding regarding bias occurs, during the course of the investigation, the FBI UCR 

Program file must be updated with the new finding. For example, if an initial finding of no bias 

was later changed to racial bias or a finding of racial bias was later changed to religious bias, the 

change should be reported to the FBI UCR Program. However, an agency should not update its 

report based on the findings of a court, coroner, or jury or the decision of a prosecutor.
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III. DEFINITIONS FOR HATE CRIME DATA COLLECTION

To ensure uniformity in reporting nationwide, the following definitions have been 

adopted for use in hate crime reporting:

Bias––A preformed negative opinion or attitude toward a group of persons based on 

their race, religion, disability, sexual orientation, ethnicity, gender, or gender identity.

Bias Crime—A committed criminal offense that is motivated, in whole or in part, by 

the offender’s bias(es) against a race, religion, disability, sexual orientation, ethnicity, gender, or 

gender identity; also known as Hate Crime. 

Note: Even if the offender was mistaken in his or her perception that the victim was a member 

of the group he or she was acting against, the offense is still a bias crime because the offender 

was motivated by bias against the group.

Bisexual––(adjective) Of or relating to people who are physically, romantically, 

and/or emotionally attracted to both men and women.

Disability Bias––A preformed negative opinion or attitude toward a group of persons 

based on their physical or mental impairments, whether such disability is temporary or 

permanent, congenital or acquired by heredity, accident, injury, advanced age, or illness.

Person with a Disability––(adjective) Of or relating to persons who have physical or 

mental impairments, whether temporary or permanent, due to conditions that are congenital or 

acquired by heredity, accident, injury, advanced age, or illness; (noun) person with a disability.

Ethnicity Bias––A preformed negative opinion or attitude toward a group of people 

whose members identify with each other, through a common heritage, often consisting of a 

common language, common culture (often including a shared religion) and/or ideology that 

stresses common ancestry. The concept of ethnicity differs from the closely related term race in 

that “race” refers to grouping based mostly upon biological criteria, while “ethnicity” also 

encompasses additional cultural factors. 

Note: When the FBI’s Hate Crime Statistics Program was initially implemented, ethnicity bias 

was reported as ethnicity/national origin bias. It was then modified by the Office of 

Management and Budget’s 1997 Revision to the Standards for the Classification of Federal Data 

on Race and Ethnicity.

Gay—(adjective) Of or relating to people who are physically, romantically, and/or 

emotionally attracted to people of the same sex. 

Note: Generally this word is used to refer to gay men, but may also be used to describe women; 

the term “gay” is preferred over the term “homosexual.” For FBI UCR Program purposes, 

however, if reporting an anti-gay bias, the victim should be a male.
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Gender—(noun) This term is used synonymously with sex to denote whether a 

newborn is male or female at birth, e.g., “it’s a boy” or “it’s a girl.”

Gender Bias—(noun) A preformed negative opinion or attitude toward a person or 

group of persons based on their actual or perceived gender, e.g., male or female.

Gender Identity—(noun) A person’s internal sense of being male, female, or a 

combination of both; that internal sense of a person’s gender may be different from the person’s 

gender as assigned at birth.

Note: A transgender person may express their gender identity through gender characteristics, 

such as clothing, hair, voice, mannerisms, or behaviors that do not conform to the gender-based 

expectations of society.

Gender Identity Bias—A preformed negative opinion or attitude toward a person or 

group of persons based on their actual or perceived gender identity, e.g., bias against transgender 

or gender non-conforming individuals.

Gender Non-Conforming—(adjective) Describes a person who does not conform to

the gender-based expectations of society, e.g., a woman dressed in traditionally male clothing or 

a man wearing makeup.

Note: A gender non-conforming person may or may not be a lesbian, gay, bisexual, or 

transgender person but may be perceived as such. Additional information is provided in 

Section V.

Hate Crime––Bias Crime.

Hate Group––An organization whose primary purpose is to promote animosity, 

hostility, and malice against persons of or with a race, religion, disability, sexual orientation, 

ethnicity, gender, or gender identity which differs from that of the members or the organization, 

e.g., the Ku Klux Klan, American Nazi Party.

Heterosexual––(adjective) Of or relating to people who are physically, romantically, 

and/or emotionally attracted to people of the opposite sex.

Note: The term straight is a synonym.

Homosexual––(adjective) Of or relating to people who are physically, romantically, 

and/or emotionally attracted to people of the same sex. 

Note: This is an outdated clinical term considered derogatory and offensive by many people; 

current journalistic standards restrict usage of the term; “lesbian” and/or “gay” accurately 

describes those who are attracted to people of the same sex.
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Lesbian––(adjective) Of or relating to women who are physically, romantically, 

and/or emotionally attracted to other women. 

Note: Some lesbian women prefer to be described as gay women; preferred over the term 

“homosexual;” may be used as a noun. For FBI UCR Program purposes, however, if reporting 

an anti-gay bias, the victim should be a male.

LGBT—(noun) Common initialism for “lesbian, gay, bisexual, and transgender,” 

used here to refer to community organizations or events that serve lesbian, gay, bisexual, 

transgender, and allied people.

National Incident–Based Reporting System––A reporting system implemented in 

the late 1980s to replace the traditional SRS. NIBRS provides for expanded collection and 

reporting of offenses and arrests and their circumstances.

Racial Bias––A preformed negative opinion or attitude toward a group of persons 

who possess common physical characteristics, e.g., color of skin, eyes, and/or hair, facial 

features, etc., genetically transmitted by descent and heredity which distinguish them as a distinct 

division of humankind, e.g., Asians, Blacks or African Americans, whites.

Religious Bias––A preformed negative opinion or attitude toward a group of persons 

who share the same religious beliefs regarding the origin and purpose of the universe and the 

existence or nonexistence of a supreme being, e.g., Catholics, Jews, Protestants, atheists.

Sexual Orientation—(noun) The term for a person’s physical, romantic, and/or 

emotional attraction to members of the same and/or opposite sex, including lesbian, gay, 

bisexual, and heterosexual (straight) individuals.

Note: Avoid the offensive terms “sexual preference” or “lifestyle.”

Sexual-Orientation Bias––(noun) A preformed negative opinion or attitude toward a 

person or group of persons based on their actual or perceived sexual orientation.

Summary Reporting System––The traditional tally system which has been used 

since 1930 to collect UCR data.

Transgender—(adjective) Of or relating to a person who identifies as a different

gender from their gender as assigned at birth.

Note: The person may also identify himself or herself as “transsexual.” Additional information

is provided in Section V.

Note: A transgender person may outwardly express his or her gender identity all of the time, part 

of the time, or none of the time; a transgender person may decide to change his or her body to 

medically conform to his or her gender identity.
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Note: Avoid the following terms: “he-she,” “she-male,” “tranny,” “it,” “shim,” “drag queen,” 

“transvestite,” and “cross-dresser.”
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IV. SCENARIOS OF BIAS MOTIVATION

A. A group home for persons with psychiatric disabilities who were in transition back 

into the community was the site of a reported arson. Investigation revealed that neighbors had 

expressed many concerns about the group home in town meetings and were angry that the house 

was located in their community. Shortly before the fire was reported, a witness heard a male 

state, “I’ll get rid of those ‘crazies.’ I’ll burn them out.” An Anti-Mental Disability Bias should 

be reported with this incident since the suspect apparently committed the crime due to his bias 

against persons with psychiatric disabilities.

B. A transgender woman met a straight man through a social networking application. 

According to the man, when the two met, they spent nearly three days together. During that 

time, the woman admitted that she used to be a man. The man then began beating her until she 

was dead. The man felt justified in beating and killing the transgender woman because he said 

he was “fooled by her gender presentation.” An Anti-Transgender Bias should be reported with 

this incident because the perpetrator targeted the victim as a result of his discovery of her 

gender identity.

C. A 29-year-old Japanese-American male was attacked by a 51-year-old white male 

wielding a tire iron. The victim suffered severe lacerations and a broken arm. The incident took 

place in a parking lot next to a bar. Investigation revealed that the offender and victim had 

previously exchanged racial insults in the bar, the offender having initiated the exchange by 

calling the victim by a well-known and recognized epithet used against the Japanese and 

complaining that the Japanese were taking away jobs from Americans. An Anti-Asian Bias 

should be reported based on the difference in race of the victim and offender, the exchange of 

racial insults, and the absence of other reasons for the attack.

D. Three female hikers--a mother, her teenage daughter, and her daughter’s friend--were 

murdered in a national park. The murders remained unsolved until a man confessed to them 

more than six months later. This same man also admitted to the murder of a female naturalist 

later that year. The murderer stated that he had “fantasized about killing all women” since he

was a child. An Anti-Female Bias should be reported with this incident as the offender made his 

fantasy about killing women become a reality.

E. A woman took a handgun into a fitness center, entered the men’s locker room, and 

fired numerous shots. Two men were killed and one other man was injured in the shooting. The 

killer’s blog revealed that she had planned the attack for some time and harbored a deep “hatred 

for men” for rejecting her all of her life. This incident should be reported with an Anti-Male 

Bias because the evidence indicated that the offender harbored a deep “hatred for men” for 

rejecting her all of her life.
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F. Late in the night, a group of individuals broke in to a local Lesbian, Gay, Bisexual, 

and Transgender Center. The group painted “We hate fags” and “Die drag queens” on the walls 

and stole the gay pride rainbow flag that was flown above the front door of the center. This 

incident should be reported with an Anti-Lesbian, Gay, Bisexual, or Transgender (Mixed Group) 

Bias based on the offender’s intent; the property crime was clearly meant to intimidate those that 

work at and use the services of the center.

G. While driving through a predominantly Mexican-American neighborhood, an 

African-American male stopped his car to repair a flat tire. A group of Mexican-Americans 

leaving a bar across the street accosted the driver and then attacked him. During the attack, the 

offenders called the victim by a well-known and recognized epithet used against blacks and told 

him that blacks were not welcome in the neighborhood. This incident should be reported with an 

Anti-Black or African American Bias because the victim and offenders are of different races, the 

offenders used a racial epithet, and the facts reveal no other reason for the attack than the stated 

one, i.e., to keep blacks out of the neighborhood.

H. Overnight, unknown persons broke into a synagogue and destroyed several religious 

objects. The perpetrators drew a large swastika on the door and wrote “Death to Jews” on a wall. 

Although valuable items were present, none were stolen. This incident should be reported with 

an Anti-Jewish Bias because the offenders destroyed religious objects and left anti-Semitic words 

and graffiti behind, and theft did not appear to be the motive for the burglary.

I. A transgender woman was walking down the street near her home when three men 

walking toward her said, “Hey, what’s your problem? Huh?” She kept walking, trying to ignore 

them. However, as they got close, one yelled “We don’t want no queers in this neighborhood,” 

and a second one knocked her to the ground. Even though an anti-gay slur was used during the 

attack, this incident should be reported with an Anti-Transgender Bias because the victim was 

attacked for presenting as a female despite having been born biologically male.

J. A female doctor at a small hospital found graffiti scratched into her car on three

consecutive nights. The words were illegible. An investigation revealed that the scratches were 

deliberately made, but there were no witnesses or suspects. Although she was the only female 

doctor at the hospital, there were many female nurses who were not targeted, therefore, that fact

alone was not sufficient to determine motive, and the incident would not be reported as bias 

motivated. However, a month later, two adult males were arrested after being caught on tape 

vandalizing the female doctor’s car again. They admitted to all the incidents, saying women do 

not belong in the medical profession. In addition to the most recent incident being reported with 

an Anti-Female Bias, the previous incident should subsequently be reported with an Anti-Female 

Bias because the men’s stereotypes about the appropriate gender roles for women prompted 

their criminal actions in both incidents.
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K. A small neighborhood bar frequented by gay men burned down after being closed for 

the night. Investigation revealed that the fire was deliberately set, but there were no witnesses or 

suspects. Although the fire was deliberately set, the fact that the bar was frequented by gay men

may have been coincidental. Therefore, the incident should not be reported as bias motivated. 

Two weeks later, three males were arrested on a tip from an informant. They admitted burning 

down the bar, saying they did it to keep gays out of the neighborhood. As a result, this incident 

should subsequently be reported with an Anti-Gay (Male) Bias.

L. A lesbian went to the local hardware store and as she was entering, heard someone 

yell, “Hey there lady, you wanna be a man?” “You look like a man.” She was wearing painting 

coveralls and had short hair. After making her purchase, she left the store only to see the same 

individual that had yelled at her slashing her tires. The man fled the scene after spotting her 

coming out of the store. An Anti-Gender Non-Conforming Bias should be reported with this 

incident since the issue was her clothing and haircut; even though she was a lesbian, her sexual 

orientation didn’t seem to be the reason she was targeted.

M. Six black men assaulted and seriously injured a white man and his Asian male friend 

as they were walking through a residential neighborhood. Witnesses said the victims were 

attacked because they were trespassing in a “black” neighborhood. An Anti-Multiple Races, 

Group Bias should be reported with the incident because the victims and offenders were of 

different races, and witnesses reported that the victims were attacked due to the fact they were 

not Black or African American.

N. A transgender man was outed to the community by a newspaper story after being 

arrested. Wearing short hair and men’s clothes, the victim had been living and presenting 

himself as a man to everyone in the community. Two male friends had become enraged after 

seeing the story, sought him out at a party, where they took him outside and assaulted him. This 

incident should be reported with an Anti-Transgender Bias because the victim was attacked as a 

result of identifying himself as a man despite having been born a female.

O. Five gay, male friends, some of whom were wearing makeup and jewelry, were 

exiting a well-known gay bar when they were approached by a group of men who were unknown 

to them. The men began to ridicule their feminine appearance and shouted “sissy,” “girlie-man,” 

and other slurs at the group, which then escalated to the assailants physically attacking the 

victims. This incident should be reported with an Anti-Gender Non-Conforming Bias because 

the perpetrators viewed some of the victims as inappropriately crossing gender lines.

P. Overnight, an auditorium used by representatives of several religious

denominations to hold an ecumenical conference was vandalized by unknown persons. 

Extensive damage was caused and statements, such as “There is but one true religion” and 

“Down with the nonbelievers,” were spray painted onto the walls. The incident should be 
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reported with an Anti-Multiple Religions, Group Bias because the offenders clearly evidenced 

their hostility against a group representing more than one religion.

Q. A transgender woman was waiting at a bus stop when she was approached by a man 

with a history of violent assaults and a previous hate crime conviction. The man assaulted the 

victim and then called her a “she-male” and used other slurs. The police confirmed that the 

victim had been simply waiting at the bus stop and the assault was completely unprovoked. An 

Anti-Transgender Bias should be reported with this incident because the victim was selected 

solely because of her gender identity and the assailant used an anti-transgender slur during the 

assault.

R. A man entered a community college and shot a female in a corridor. He then entered 

a classroom with 10 women and 48 men, fired a shot into the ceiling and said, “I want the 

women.” “I hate feminists.” He sent all of the men from the room, lined the women up against 

the wall and opened fire, killing 6 of the women and wounding the others. This incident should 

be reported with an Anti-Female Bias because the offender said “I want the women. I hate 

feminists.” He also removed all of the men, shot only at women, and claimed he needed to “kill 

the feminists.”

S. An African-American man had just finished a midnight riverboat cruise with his 

fiancée and friends when he escorted his blind, male friend by the arm into a restroom while 

holding his girlfriends’ purse. Inside the restroom, another man hurled anti-black and anti-gay 

insults at the men. The perpetrator followed them out of the restroom, continuing his verbal 

harassment. He then went to his car, retrieved a gun, returned to confront the men and said, 

“Now what you got to say?” The perpetrator fired the gun fatally injuring one of the men. This 

incident should be reported with an Anti-Black African American Bias and Anti-Gay (Male) Bias

because the perpetrator used exclusively anti-black and anti-gay slurs and also acted out on his 

mistaken perception that the victim was gay.

T. Early in the morning, two Latino immigrant brothers were attacked by two AfricanAmerican men while walking down the street. The brothers were huddled together to stay warm. 

The attackers mistakenly believed that the two men were a gay couple because they were 

walking so closely together. The attackers beat the brothers while using anti-gay and anti-Latino 

slurs. This incident should be reported with an Anti-Gay (Male) Bias and Anti-Hispanic or 

Latino Bias because the perpetrators were motivated by the perceived sexual orientation of the 

brothers and their race/ethnicity as evidenced by the use of both anti-gay and anti-Latino slurs.

U. At a house party, a transgender woman was ridiculed and made to feel unwelcome. 

As she attempted to leave, she was severely beaten and killed. This incident should be reported 

with an Anti-Transgender Bias because the victim was targeted due to her gender identity.
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V. Two white, gay men were walking through a neighborhood where a number of gay 

bars and businesses are located. Four Latino men approached them and hit one of the gay men in 

the face, rendering him unconscious. The assailants then hurled anti-gay slurs at the men and 

demanded their money and cell phones. An Anti-Gay Bias should be reported with this incident. 

The bias was evident in the attack, through the use of slurs, and in the selection of a gay area as 

the site of the attack, even though robbery was also a motive. Race should not be identified as 

the bias because there was no evidence of racial or ethnic animosity.

W. An adult white male was approached by four white teenagers who requested money 

for the bus. When he refused, one of the youths said to the others, “Let’s teach this [epithet for a 

gay person] a lesson.” The victim was punched in the face, knocked to the ground, kicked 

several times, and robbed of his wristwatch, ring, and wallet. When he reported the crime, the 

victim advised he did not know the offenders and that he was not gay. The facts are 

ambiguous.* Although an epithet for a gay person was used by one of the offenders, the victim 

was not gay. Such epithets are sometimes used as general insults regardless of the target 

person’s sexual orientation, and in this case the offenders’ motivation appeared to be limited to 

obtaining money from the victim. Therefore, the incident should not be designated bias 

motivated until the investigation positively concludes that the offenders’ bias was a contributing 

factor in the crime.

X. A white juvenile male snatched a Jewish woman’s purse, and in doing so, knocked 

her down and called her by a well-known and recognized epithet used against Jews. The 

offender’s identity is not known. Although the offender used an epithet for Jews, it is not known 

whether he belongs to another religious group or whether his motive was anything more than 

robbery. Because the facts are ambiguous,* agencies should not report this incident as biasmotivated until the investigation positively concludes that the offender’s bias was a contributing 

factor in the crime.

*Note: If the facts are ambiguous, (i.e., where some facts are present but are not conclusive), it 

is only in the NIBRS that incidents involving ambiguous facts can be reported, (i.e., 99 = 

Unknown). The intent of bias motivation code 99 = Unknown is to allow a NIBRS agency to 

report a crime in which bias motivation is unknown or when the investigation has not been 

completed. When it is determined the presence of bias motivation is conclusive, the reported 

bias motivation code 99 = Unknown should be modified to indicate the results of the subsequent 

investigation. Law enforcement agencies should be diligent in modifying these types of 

situations as they become known. In addition, a law enforcement agency not reporting hate 

crime in the NIBRS would not submit a Hate Crime Incident Report until the investigation 

determined a bias crime did occur.
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V. UNDERSTANDING HOW TO DISTINGUISH SEXUAL ORIENTATION, 

GENDER IDENTITY, ANTI-TRANSGENDER, AND ANTI-GENDER NONCONFORMING CRIMES

A. Sexual Orientation vs. Gender Identity-Motivated Crimes

Transgender and gender non-conforming people may be of any sexual orientation 

(gay, lesbian, bisexual, or heterosexual). Knowing about a person’s gender identity (as 

transgender or gender non-conforming) does not tell you anything about their sexual orientation. 

They are separate categories.

When crimes are committed against people based on sexual orientation or gender 

identity, epithets often reveal the motive for the attack. Typical gender identity-related epithets 

and terms include: “he-she,” “she-male,” “tranny,” “it,” and “transvestite.” Also, the terms 

“cross dresser” and “drag queen” may be used in a hateful way, even though some individuals 

may self-identify with these terms. It is common for perpetrators of anti-transgender hate crimes 

to attack the victim after learning the victim is transgender.

Confusion in classifying the motive of a crime can occur when a perpetrator is 

motivated solely because of the victim’s gender identity but uses an anti-gay term as well. They 

do this because they are often more familiar with anti-gay terms like “faggot,” “dyke,” and 

“queer,” not because they are actually motivated by bias toward the victim’s sexual orientation. 

Therefore, a perpetrator may use anti-gay epithets, even though they have targeted a person 

entirely because the victim is transgender or gender non-conforming.

B. Anti-Transgender vs. Anti-Gender Non-Conforming Motivated Crimes

It may not always be obvious whether or not a crime should be classified as “antitransgender” or “anti-gender non-conforming.” 

Anti-transgender is the category for crimes that are committed primarily because 

the person lives/presents as a gender different than their sex at birth; for example, crimes that 

involve someone who identifies as a woman but was born male, or vice versa. Persons may 

identify themselves as “transgender” or “transsexual.” Also, if this person is cross-dressing but 

has not changed to the gender they identify with, that is also an anti-transgender crime; for 

example, if a man wearing a dress is attacked after leaving a party, that would be an antitransgender crime. A possible indication that the crime is anti-transgender is if the word(s) 

“transgender,” “transsexual,” “tranny,” “transvestite,” “drag king,” or “drag queen,” is used in 

the commission of a crime. 

Anti-gender non-conforming crimes involve people whose appearance is only 

slightly gender non-conforming—they are not presenting 100 percent as the other gender. An 
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example would be a male who wears men’s clothes and identifies as a male, but wears eyemakeup; when he is attacked for that reason, this is a gender non-conforming crime. The 

opposite example is a woman who identifies as a woman, but wears a male item of clothing like 

a tie, and is attacked for that reason. A possible indication that the incident was an anti-gender 

non-conforming bias is if the word(s) “sissy,” “lady,” “girlie man,” or “tomboy” is used in the 

commission of a crime.

C. Working With Transgender Victims/Witnesses

Transgender people should be addressed according to the gender they identify and 

live as now, regardless of the gender they were born as. If someone identifies as a woman (even 

if born male), she should be addressed as a woman, by using “she,” “her,” and “Ms.” To refer to 

her, use her preferred name (even if she has not yet legally changed her name). If someone 

identifies as a man (even if born female), then he should be addressed as a man, with male 

pronouns, and his preferred name.

If you need to refer to someone’s gender identity, the term transgender is the 

safest to use; be sure to not use words that may be considered offensive epithets. In addition, it 

is important to know that the term transgender is an adjective, and should not be changed to 

“transgendered” or “transgenders.” If you do not know if someone should be referred to with 

female or male pronouns, it is acceptable to ask that person their preferred pronoun. 

Disrespectful attitudes toward the victim or witness of a crime can add to their sense of trauma. 

By showing respect, officers can avoid a potential conflict with a victim or witness over misuse 

of proper names and pronouns and focus everyone’s attention on solving the crime that occurred.

D. Reporting Victim Sex in the NIBRS if an Anti-Transgender Bias Occurs

The NIBRS collects more detailed data on the victims, offenders, and the 

circumstances of crime. For example, a NIBRS participating law enforcement agency should 

report within an incident the age, sex, race, and ethnicity of the victim for each Crime Against 

Person offense. If the committed offense was bias motivated, or specifically involved an AntiTransgender Bias, the agency should report the victim’s sex as the gender identity expressed by 

the victim. Whereas on the Hate Crime Incident Report, if the victim type is Individual, only the 

total number of victims, total victims 18 years of age, and total victims under 18 years of age are 

collected.

Note: The above-mentioned information (A, B, and C) was provided by the Hate Crime 

Coalition Working Group. It was possible to include this content due to the subject matter 

expertise of the working group members.
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VI. LEARNING MODULES FOR DEFINING AND REPORTING HATE CRIMES

Use of the Enclosed Learning Modules

Two learning modules are included in this manual for use in the instruction of law 

enforcement personnel on hate crime matters. The modules are in no way exhaustive or 

exclusive of either what can be trained or the way the material should be presented. Rather, they 

are intended merely as a suggested approach to such instruction. In order to obtain the most 

benefit from the materials, an agency should tailor them to meet its unique needs. The reader 

may also be interested in the model training programs produced by the International Association 

of Chiefs of Police (IACP) and the National Organization of Black Law Enforcement Executives 

(NOBLE). This training information can be obtained by contacting the organizations directly.

Learning Module One

“Learning Module One: Bias-Motivated Crimes—Definitions and Procedures”

provides definitions of terms law enforcement officers need to know in dealing with hate crime. 

It includes a hate crime reporting model that can be adapted for law enforcement use.

The most important aspect of the model concerns the two-tier reviewing process. 

The purpose of the two-tier procedure is to ensure that suspected bias-motivated incidents 

undergo two levels of review within the reporting agency. Under the model system, the officer 

who responds to the incident is responsible for determining whether there is any indication that 

the offender was motivated by bias. If so, the responding officer should designate the incident as 

a “Suspected Bias-Motivated Crime” and pass it on for review by a second officer (or unit) 

possessing greater expertise in hate crime matters. This latter officer or unit has the 

responsibility for making the final decision as to whether the incident constitutes a hate crime. It 

is only after the incident has undergone the second review and is determined to be a hate crime 

that it is ready to be reported as such to the FBI UCR Program.

Learning Module Two

“Learning Module Two: Case Study Exercises of Possible Bias-Related Crimes”

gives the student officer the opportunity to apply his or her newly-gained knowledge of hate 

crime matters to hypothetical cases. The student is to read each case scenario and 

(1) classify the type of offense(s) involved in the incident, (2) classify the offense as either “Not 

a Bias-Motivated Crime” or a “Suspected Bias-Motivated Crime,” and (3) provide reasons for 

his or her decisions.
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LEARNING MODULE ONE:

Bias-Motivated Crimes—Definitions and Procedures

MODULE DESCRIPTION:

This module provides: (1) definitions of hate crime terminology, (2) a “model”

approach to reporting hate crimes, and (3) criteria for determining whether a hate crime has 

occurred.

COURSE OBJECTIVES:

• The student will be able to define Bias/Hate Crime based on Race, Religion,

Ethnicity, Sexual Orientation, Disability, Gender, and Gender Identity, as well as 

Responding Officer, and Second-Level Judgment Officer/Unit.

• The student will be able to explain the “two-tier” process for reporting hate 

crimes.

• The student will be able to list the types of criteria used to make a determination 

of whether a crime was bias motivated.

DEFINITIONS FOR HATE CRIME DATA COLLECTION:

To ensure uniformity in reporting nationwide, the following definitions have been 

adopted for use in hate crime reporting:

Bias––A preformed negative opinion or attitude toward a group of persons based on 

their race, religion, disability, sexual orientation, ethnicity, gender, or gender identity.

Bias Crime—A committed criminal offense that is motivated, in whole or in part, by 

the offender’s bias(es) against a race, religion, disability, sexual orientation, ethnicity, gender, or 

gender identity; also known as Hate Crime. 

Note: Even if the offender was mistaken in his or her perception that the victim was a member 

of the group he or she was acting against, the offense is still a bias crime because the offender 

was motivated by bias against the group.

Bisexual––(adjective) Of or relating to people who are physically, romantically, 

and/or emotionally attracted to both men and women.

Disability Bias––A preformed negative opinion or attitude toward a group of persons 

based on their physical or mental impairments, whether such disability is temporary or 

permanent, congenital or acquired by heredity, accident, injury, advanced age, or illness.
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Person with a Disability––(adjective) Of or relating to persons who have physical or 

mental impairments, whether temporary or permanent, due to conditions that are congenital or 

acquired by heredity, accident, injury, advanced age, or illness; (noun) person with a disability.

Ethnicity Bias––A preformed negative opinion or attitude toward a group of people 

whose members identify with each other, through a common heritage, often consisting of a 

common language, common culture (often including a shared religion) and/or ideology that 

stresses common ancestry. The concept of ethnicity differs from the closely related term race in 

that “race” refers to grouping based mostly upon biological criteria, while “ethnicity” also 

encompasses additional cultural factors. 

Note: When the FBI’s Hate Crime Statistics Program was initially implemented, ethnicity bias 

was reported as ethnicity/national origin bias. It was then modified by the Office of 

Management and Budget’s 1997 Revision to the Standards for the Classification of Federal Data 

on Race and Ethnicity.

Gay—(adjective) Of or relating to people who are physically, romantically, and/or 

emotionally attracted to people of the same sex. 

Note: Generally this word is used to refer to gay men, but may also be used to describe women; 

the term “gay” is preferred over the term “homosexual.” For FBI UCR Program purposes, 

however, if reporting an anti-gay bias, the victim should be a male.

Gender—(noun) This term is used synonymously with sex to denote whether a 

newborn is male or female at birth, e.g., “it’s a boy” or “it’s a girl.”

Gender Bias—(noun) A preformed negative opinion or attitude toward a person or 

group of persons based on their actual or perceived gender, e.g., male or female.

Gender Identity—(noun) A person’s internal sense of being male, female, or a 

combination of both; that internal sense of a person’s gender may be different from the person’s 

gender as assigned at birth.

Note: A transgender person may express their gender identity through gender characteristics, 

such as clothing, hair, voice, mannerisms, or behaviors that do not conform to the gender-based 

expectations of society.

Gender Identity Bias—A preformed negative opinion or attitude toward a person or 

group of persons based on their actual or perceived gender identity, e.g., bias against transgender 

or gender non-conforming individuals.

Gender Non-Conforming—(adjective) Describes a person who does not conform to

the gender-based expectations of society, e.g., a woman dressed in traditionally male clothing or 

a man wearing makeup.
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Note: A gender non-conforming person may or may not be a lesbian, gay, bisexual, or 

transgender person but may be perceived as such. Additional information is provided in 

Section V.

Hate Crime––Bias Crime.

Hate Group––An organization whose primary purpose is to promote animosity, 

hostility, and malice against persons of or with a race, religion, disability, sexual orientation, 

ethnicity, gender, or gender identity which differs from that of the members or the organization, 

e.g., the Ku Klux Klan, American Nazi Party.

Heterosexual––(adjective) Of or relating to people who are physically, romantically, 

and/or emotionally attracted to people of the opposite sex.

Note: The term straight is a synonym.

Homosexual––(adjective) Of or relating to people who are physically, romantically, 

and/or emotionally attracted to people of the same sex. 

Note: This is an outdated clinical term considered derogatory and offensive by many people; 

current journalistic standards restrict usage of the term; “lesbian” and/or “gay” accurately 

describes those who are attracted to people of the same sex.

Lesbian––(adjective) Of or relating to women who are physically, romantically, 

and/or emotionally attracted to other women. 

Note: Some lesbian women prefer to be described as gay women; preferred over the term 

“homosexual;” may be used as a noun. For FBI UCR Program purposes, however, if reporting 

an anti-gay bias, the victim should be a male.

LGBT—(noun) Common initialism for “lesbian, gay, bisexual, and transgender,” 

used here to refer to community organizations or events that serve lesbian, gay, bisexual, 

transgender, and allied people.

National Incident–Based Reporting System––A reporting system implemented in 

the late 1980s to replace the traditional SRS. NIBRS provides for expanded collection and 

reporting of offenses and arrests and their circumstances.

Racial Bias––A preformed negative opinion or attitude toward a group of persons 

who possess common physical characteristics, e.g., color of skin, eyes, and/or hair, facial 

features, etc., genetically transmitted by descent and heredity which distinguish them as a distinct 

division of humankind, e.g., Asians, Blacks or African Americans, whites.

Religious Bias––A preformed negative opinion or attitude toward a group of persons 

who share the same religious beliefs regarding the origin and purpose of the universe and the 

existence or nonexistence of a supreme being, e.g., Catholics, Jews, Protestants, atheists.
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Sexual Orientation—(noun) The term for a person’s physical, romantic, and/or 

emotional attraction to members of the same and/or opposite sex, including lesbian, gay, 

bisexual, and heterosexual (straight) individuals.

Note: Avoid the offensive terms “sexual preference” or “lifestyle.”

Sexual-Orientation Bias––(noun) A preformed negative opinion or attitude toward a 

person or group of persons based on their actual or perceived sexual orientation.

Summary Reporting System––The traditional tally system which has been used 

since 1930 to collect UCR data.

Transgender—(adjective) Of or relating to a person who identifies as a different

gender from their gender as assigned at birth.

Note: The person may also identify himself or herself as “transsexual.” Additional information

is provided in Section V.

Note: A transgender person may outwardly express his or her gender identity all of the time, part 

of the time, or none of the time; a transgender person may decide to change his or her body to 

medically conform to his or her gender identity.

Note: Avoid the following terms: “he-she,” “she-male,” “tranny,” “it,” “shim,” “drag queen,” 

“transvestite,” and “cross-dresser.”

PROCEDURES AND CRITERIA:

Two-Tier Decision-Making Process

The FBI UCR Program surveyed state UCR Program managers on hate crime 

collection procedures in use at various law enforcement agencies within their states. It found 

that most law enforcement agencies that collect hate crime data employ a two-tier decisionmaking process. The first level is the law enforcement officer who initially responds to the 

alleged hate crime incident, i.e., the “Responding Officer” (or “First-Level Judgment Officer”). 

It is the responsibility of the Responding Officer to determine whether there is any indication 

that the offender was motivated by bias. If there is, the officer is to designate the incident as a 

“Suspected Bias-Motivated Crime” and forward the case file to a “Second-Level Judgment 

Officer/Unit.” In smaller agencies this is usually a person specially trained in hate crime matters, 

while in larger agencies it may be a special unit.

It is the task of the Second-Level Judgment Officer/Unit to review carefully the 

facts of the incident and make the final determination of whether a hate crime has actually 

occurred. If so, the incident is to be reported to the FBI UCR Program as a bias-motivated 

crime.
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Responding Officer’s Responsibilities

Law enforcement’s response to an alleged hate crime begins no differently than to 

any other crime. The Responding Officer must quickly evaluate what has happened and take any 

necessary action to stabilize the situation. After that has been done, there are two unique areas of 

concern which should be recognized by an officer responding to an alleged hate crime: 

(1) sensitivity to the needs of the victim and (2) the elements of a bias crime. 

First, the Responding Officer should be sensitive to the effects of a bias crime on 

the victim. A victim of any crime may feel isolated from others, fearful that the occurrence will 

happen again, and angry that he or she has become a victim. However, there is a deeper level of 

isolation, fear, and anger that the victim of hate crime feels. This individual has been chosen 

from the rest of the population to be victimized for no other reason than his or her race, religion, 

disability, ethnicity, sexual orientation, gender, or gender identity. There is nothing this person 

can do; indeed, there is nothing he or she ought to do to change his or her race, religion, 

disability, ethnicity, sexual orientation, gender, and gender identity. And yet, it is because of 

these very innate qualities that he or she was victimized. This type of personal experience can 

result, many times, in a feeling of loss of control over one’s life. By recognizing these dynamics, 

the Responding Officer can address the special needs of the victim, thereby placing him or her at 

some ease and thereby making it easier to elicit from him or her necessary information 

concerning the alleged offense. Another task of the Responding Officer is to determine whether 

additional resources are needed on the scene, such as community affairs/relations 

representatives, mental/physical health professionals, and/or the clergy. At a minimum, the 

victim should be referred to appropriate social and legal services.

Second, the Responding Officer must be knowledgeable of the elements of a biasrelated crime. As set forth in this document, a bias crime is a criminal offense committed against 

a person or property or if reported in the NIBRS, a crime against society (i.e., Drug/Narcotic 

Offenses, Gambling Offenses, Pornography/Obscene Material, Prostitution Offenses, and 

Weapon Law Violations), which is motivated by the offender’s bias against the victim’s race, 

religion, disability, ethnicity, sexual orientation, gender, or gender identity. At the level of the 

Responding Officer, if there is any indication that the offender was motivated by bias to commit 

the crime, the incident should be classified as a “Suspected Bias-Motivated Crime.” 

The types of factors to be considered by the Reporting Officer in making a 

determination of whether the incident is a “Suspected Bias-Motivated Crime” are:

• Is the motivation of the alleged offender known?

• Was the incident known to have been motivated by racial, religious, disability, ethnic, 

sexual orientation, gender, or gender identity bias?
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• Does the victim perceive the action of the offender to have been motivated by bias?

• Is there no clear other motivation for the incident?

• Were any racial, religious, disability, ethnic, sexual orientation, gender, or gender 

identity bias remarks made by the offender?

• Were there any offensive symbols, words, or acts which are known to represent a hate 

group or other evidence of bias against the victim’s group?

• Did the incident occur on a holiday or other day of significance to the victim’s or 

offender’s group?

• What do the demographics of the area tell you about the incident?

If these or other factors indicate that the offender may have been motivated by 

bias to commit the crime, the incident should be classified as a “Suspected Bias-Motivated 

Crime” and sent on to the Second-Level Judgment Officer/Unit for review. While the mere 

utterance of a racial epithet by the offender does not provide sufficient basis to report a crime as 

a “Suspected Bias-Motivated Crime,” it, combined with other factors indicating bias, could do 

so. For the purpose of first-level bias crime reporting, the old adage of “when in doubt, check it 

out” should be followed, i.e., questionable cases should be referred to the Second-Level 

Judgment Officer/Unit for resolution. 

Second-Level Judgment Officer’s/Unit’s Responsibilities

The second tier in the decision-making process is where the final decision is made 

regarding whether an offense was bias motivated. Therefore, the people who make final 

decisions must be specially trained to the point of being “experts” on bias matters. The 

Responding Officer had merely to determine whether there was any indication that the offense 

was motivated by bias. On the other hand, the Second-Level Judgment Officer/Unit must 

carefully sift through the facts using more stringent criteria to determine whether the incident 

was, in fact, a hate crime.

The second level of review can be a specially trained officer, investigator, 

supervisor, or specially-established hate crime unit. This does not mean that every agency must 

establish a “Special Hate Crime Unit.” Given the fiscal constraints prevalent throughout most of 

the law enforcement community, such a proposition would be an unreasonable requirement.

However, what is suggested is that somewhere in the agency’s already established crime 

reporting review process, someone should be specifically tasked with the responsibility of 

reviewing “Suspected Bias-Motivated Crimes” and making the final decision as to the existence 

or nonexistence of bias motivation.
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During the second review, the Second-Level Judgment Officer/Unit should have 

time to consider carefully the findings of the Responding Officer and perhaps even conduct 

interviews of the victims and witnesses if necessary. For an incident to be reported as a hate 

crime, sufficient objective facts must be present to lead a reasonable and prudent person to 

conclude that the offender’s actions were motivated, in whole or in part, by bias. While no 

single fact may be conclusive, positive answers to the types of questions listed below are 

supportive of a finding of bias motivation. It is important for a distinction to be established. The 

mere fact that the offender is biased against the victim’s race, religion, disability, ethnicity, 

sexual orientation, gender, and/or gender identity does not mean a hate crime was involved. 

Rather, the offender’s criminal act must have been motivated, in whole or in part, by his or her 

bias.

The Second-Level Judgment Officer/Unit should seek answers to the following 

types of questions before making the final determination of whether an incident was motivated 

by bias:

• Is the victim a member of a specific race, religion, disability, ethnicity, sexual 

orientation, gender, or gender identity?

• Was the offender of a different race, religion, ethnicity, sexual orientation, gender, or 

gender identity than the victim? For example, the victim was African American and 

the offender was white.

• Would the incident have taken place if the victim and offender were of the same race, 

religion, disability, ethnicity, sexual orientation, gender, or gender identity?

• Were biased oral comments, written statements, or gestures made by the offender 

which indicated offender’s bias? For example, the offender shouted a racial or ethnic 

epithet at the victim.

• Were bias-related drawings, markings, symbols, or graffiti left at the crime scene, 

e.g., a swastika was painted on the door of a synagogue, mosque, or LGBT Center.?

• Were certain objects, items, or things that indicate bias used, e.g., the offenders wore 

white sheets with hoods covering their faces; a burning cross was left in front of the 

victim’s residence?

• Is the victim a member of a specific group which is overwhelmingly outnumbered by 

other residents in the neighborhood where the victim lives and the incident took 

place? 
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• Was the victim visiting a neighborhood where previous hate crimes had been 

committed because of race, religion, disability, ethnicity, sexual orientation, gender, 

or gender identity and where tensions remained high against victim’s group?

• Have several incidents occurred in the same locality, at or about the same time, and 

were the victims all of the same race, religion, disability, ethnicity, sexual orientation, 

gender, or gender identity?

• Does a substantial portion of the community where the crime occurred perceive that 

the incident was motivated by bias?

• Was the victim engaged in activities related to his or her race, religion, disability, 

ethnicity, sexual orientation, gender, or gender identity? For example, the victim was 

a member of the NAACP or participated in an LGBT Pride celebration.

• Did the incident coincide with a holiday or a date of particular significance relating to

a race, religion, disability, ethnicity, sexual orientation, gender, or gender identity, 

e.g., Martin Luther King Day, Rosh Hashanah, or the Transgender Day of 

Remembrance (November 20)?

• Was the offender previously involved in a similar hate crime or is a hate group 

member?

• Were there indications that a hate group was involved? For example, a hate group 

claimed responsibility for the crime or was active in the neighborhood.

• Does a historically-established animosity exist between the victim’s and offender’s 

groups?

• Is this incident similar to other known and documented cases of bias, particularly in 

this area? Does it fit a similar modus operandi to these other incidents?

• Has this victim been previously involved in similar situations?

• Are there other explanations for the incident, such as a childish prank, unrelated

vandalism, etc.?

• Did the offender have some understanding of the impact his or her actions would 

have on the victim?

The Second-Level Judgment Officer/Unit should respond to the scenes of large 

bias incidents, such as race riots, demonstrations, etc. When doing so, a determination should be 

made whether additional resources should be called to the scene, such as police tactical units, 

community affairs/relations representatives, mental/physical health professionals, and faith 

leaders.
Version 1.0, 12/19/2012 28

It is important to note that only after the Second-Level Judgment Officer/Unit has 

made a decision that the crime was bias motivated should it be reported to the FBI UCR 

Program.
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LEARNING MODULE TWO:

Case Study Exercises of Possible Bias-Related Crimes

MODULE DESCRIPTION:

This module provides the student officer with hypothetical case scenarios to 

practice his or her knowledge gained from Learning Module One.

COURSE OBJECTIVES:

The student will be able to evaluate a hypothetical case and (1) classify the 

offenses involved in the incident, (2) classify the incident as either “Not a Bias-Motivated 

Crime” or a “Suspected Bias-Motivated Crime,” and (3) give the reasons for his or her decision.

RULES FOR THE EXERCISE SESSION:

The student officer is to read the hypothetical cases and (1) classify the offense(s) 

involved in each incident, (2) classify the fact situations as either ‘Not a Bias-Motivated Crime”

or a “Bias-Motivated Crime,” and (3) give reasons for his or her bias classification decisions.

EXERCISE CASES:

Exercise (1): Deputy Sheriff Jackson received a radio call to go to an apartment and 

interview an individual complaining of threats made over the telephone. Upon arriving at the 

apartment, the complainant, a white female, informed Deputy Jackson she is a lesbian and that 

over the last two weeks she has received repeated telephone calls from a person who stated that 

the complainant had been seen going into “gay bars,” and therefore, she would have to be 

“punished.”

Crime Classification: Intimidation 

Bias Classification: Anti-Lesbian

Reasons: Threats were made to harm the victim physically because of her sexual

orientation.

Note: In addition to collecting hate crimes based on gender and gender identity, the Matthew 

Shepard and James Byrd, Jr. Hate Crimes Prevention Act requires statistics to be captured on 

hate crimes committed by/directed against juveniles. In Exercise 1, however, it is not possible to 

report the age of the offender. Therefore, if an agency reports their hate crime incidents on the 

Hate Crime Incident Report, for this incident, one offender should be reported and the age 

breakdown should be entered as 00.

 
Version 1.0, 12/19/2012 30

Exercise (2): On January 1, a woman was walking alone after leaving a party when 

she was tackled to the ground by a man. He began choking her and yelling “I hate you,” “You 

bitch.” Nearby, an-undercover officer heard the man’s yelling. The officer was able to restrain 

the man but he continued screaming “I hate all of the bitches.” The victim indicated she had 

never seen the man before. Later the man told the officer he had been at a bar and had tried to 

talk to a woman. She had laughed at him and he said he was not going to take it anymore.

Crime Classification: Aggravated Assault

Bias Classification: Anti-Female

Reasons: The offender attacked the woman because of his bias against women. This 

is evidenced by his statements and also by what he told the officer.

Exercise (3): On February 2, at 3:30 a.m., as Detective Phipps was returning home at 

the end of his tour, he came across a vehicle that appeared abandoned. When he approached the 

vehicle, he found an unconscious individual who was biologically male who had sustained 

several bruises to the head and was partially dressed in women’s clothing. Written on the 

windshield of the vehicle was the word “Tranny,” and on the passenger seat of the vehicle, he 

saw a woman’s dress and wig. A state-issued driver’s license was found in the car and it 

identified the victim as having a female name.

Crime Classification: Aggravated Assault

Bias Classification: Anti-Gender Non-Conforming and Anti-Transgender

Reasons: The incident should be reported with an Anti-Gender Non-Conforming 

Bias and Anti-Transgender Bias because the victim appears to have been targeted for dressing in 

a way that does not correspond to the victims; birth sex. It is unclear based on the evidence if the 

victim was attacked for wearing women’s clothing and a wig at the time of the attack (antigender non-conforming) or for living as a female despite being born biologically male (antitransgender).

Exercise (4): As Officer Sloan was walking her “beat,” her attention was drawn to 

two individuals who were engaged in a shouting match. As the officer approached, she 

overheard the two men, one white and the other black, shouting obscenities at each other. The 

argument concerned a parking space to which each believed he was entitled. As the argument 

continued, a racial epithet was shouted by one of the men. At this point, Officer Sloan arrived at 

the scene and quieted the men. What appeared to have happened was that one of the drivers had 

gotten to the parking space first but did not use his turn signal to indicate he was waiting to pull 

into the parking space. The second driver, coming upon what appeared to be an unoccupied 

parking space, proceeded to maneuver his car around the first driver’s car and into the space. 

The argument then began.
Version 1.0, 12/19/2012 31

Crime Classification: None

Bias Classification: Unbiased Crime Incident

Reasons: The argument only involved the issue of which driver deserved to get the 

parking space. One of the questions one should ask in investigating alleged bias incidents is:

“Would the incident have taken place if both the victim and offender were of the same race, 

religion, ethnicity, sexual orientation, gender, or gender identity? If the answer is ‘Yes,’ it is 

“Not a Bias-Motivated Crime.”

Exercise (5): During the midnight tour, Deputy Sheriff Hennessey was patrolling her

assigned watch area. Shining her cruiser light on various business establishments, she noticed 

one building had been spray painted. The graffiti included racial epithets used against Asians 

and threats against the owners of a Chinese restaurant which is located in the building. The 

deputy knows the Chinese owners are the only Asians in that business district. No other 

buildings were spray painted.

 Crime Classification: Destruction/Damage/Vandalism of Property

Bias Classification: Anti-Asian

Reasons: The offenders apparently were motivated by their bias against Asians. 

This is evidenced by their use of Asian epithets and the fact that no other business in the area 

was spray painted.

Exercise (6): At 8:30 p.m., Officer Gregory responded to a report of an altercation at 

a bar/restaurant. Upon arriving at the scene, he found paramedics providing medical care to an 

African-American male. The victim informed him he was accosted by three white male patrons 

who repeatedly asked if he were gay. He politely told them he was not. Officer Gregory also 

spoke to the bartender who indicated he had noticed the odd behavior in the men, as they took 

turns leaving the restaurant to wait outside, then returning while another took their place. Upon 

leaving the restaurant, the victim was approached and racial and gay epithets were said and the 

male was struck forcefully in the head by one of the men. The blow knocked the victim to the 

pavement where he struck his head and was knocked unconscious.

Crime Classification: Aggravated Assault

Bias Classification: Anti-Black or African American and Anti-Gay (Male)

Reasons: The offenders apparently were motivated by their perception that the man 

was gay and their bias against African Americans.

Note: Up to five bias motivations per offense type can be reported.
Version 1.0, 12/19/2012 32

Exercise (7): On July 9, at approximately 10:30 p.m., Officer Cassidy was 

dispatched to investigate a 911 call. Upon arriving at the location, she found a woman who had 

been beaten. The victim explained to the officer she had been walking home from an LGBT 

Center when she was accosted by two men. She stated the men beat her and were also verbally 

abusive and mocked her for her short hair style and for how masculine her clothes and shoes 

were.

Crime Classification: Aggravated Assault

Bias Classification: Anti-Gender Non-Conforming

Reasons: The perpetrators attacked the victim because she did not fit the image they 

associated as female.

Exercise (8): At 11 p.m. Officers Reid and Shandler responded to the scene of a 

reported house arson. The target of the arson was a group home for persons with psychiatric 

disabilities who were in transition back into the community. Investigation revealed that 

neighbors had expressed many concerns about the group home and were angry that the house 

was located in their community. Shortly before the fire was reported, a witness heard a male 

voice state, “I’ll get rid of those ‘crazies.’ I’ll burn them out.”

Crime Classification: Arson

Bias Classification: Anti-Mental Disability

Reasons: The suspect committed the crime of arson primarily because of his bias 

against persons with psychiatric disabilities. The witness heard a statement that supports the bias 

motivation finding.

Exercise (9): While on patrol in his police car, Officer Lopez noticed an individual, 

who later identified himself as Mr. Chopra, attempting to scrub some painted words and 

markings off of his car, which was parked outside the apartment building where he lives. Officer 

Lopez asked Mr. Chopra what happened to his car. Mr. Chopra explained that he had moved 

into the neighborhood three weeks ago and unknown persons had repeatedly painted his car and 

the door of his apartment with Anti-Black or African American epithets/slurs. Mr. Chopra said 

he did not understand why this was happening to him because he is not African American and he 

had immigrated to the United States from India.

Crime Classification: Destruction/Damage/Vandalism of Property

Bias Classification: Anti-Black or African American
Version 1.0, 12/19/2012 33

Reasons: Although Mr. Chopra is not African American, it is the perception of the 

offenders that he is a member of a minority against which they are biased. Even when offenders 

erroneously target the victims, their offenses are still bias-motivated crimes because the 

offenders were motivated by bias.

Note: Additional scenarios of bias motivations are provided in Section IV.
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APPENDIX I

Legislation

As Amended, 28 U.S.C. § 534

§ “[Sec. 1.] (a) This Act may be cited as the ‘Hate Crime Statistics Act’.

“(b)

(1) Under the authority of section 534 of title 28, United States Code, the

Attorney General shall acquire data, for each calendar year, about crimes that manifest

evidence of prejudice based on race, gender and gender identity, religion, disability, sexual 

orientation, or ethnicity, including where appropriate the crimes of murder, non-negligent 

manslaughter; forcible rape; aggravated assault, simple assault, intimidation; arson; and 

destruction, damage or vandalism of property.

“(2) The Attorney General shall establish guidelines for the collection of such data

including the necessary evidence and criteria that must be present for a finding of

manifest prejudice and procedures for carrying out the purposes of this section.

“(3) Nothing in this section creates a cause of action or a right to bring an action,

including an action based on discrimination due to sexual orientation. As used in this

section, the term ‘sexual orientation’ means consensual homosexuality or heterosexuality.

This subsection does not limit any existing cause of action or right to bring an action,

including any action under the Administrative Procedure Act or the All Writs Act

[5 U.S.C.S. §§ 551 et seq. or 28 U.S.C.S. § 1651].

“(4) Data acquired under this section shall be used only for research or statistical

purposes and may not contain any information that may reveal the identity of an

individual victim of a crime.

“(5) The Attorney General shall publish an annual summary of the data acquired

under this section, including data about crimes committed by, and crimes directed

against, juveniles.

“(c) There are authorized to be appropriated such sums as may be necessary to carry

out the provisions of this section through fiscal year 2002.

“Sec. 2. (a) Congress finds that—

“(1) the American family life is the foundation of American Society,

“(2) Federal policy should encourage the well-being, financial security, and health

of the American family,

“(3) schools should not de-emphasize the critical value of American family life.

“(b) Nothing in this Act shall be construed, nor shall any funds appropriated to carry

out the purpose of the Act be used, to promote or encourage homosexuality.”
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PUBLIC LAW 103-322—SEPT. 13, 1994

108 STAT. 2131

Subsection (b)(1) of the first section of the Hate Crime Statistics Act (28 U.S.C. 

534 note) is amended by inserting “disability,” after “religion,”.

Approved September 13, 1994.

PUBLIC LAW 104-155—JULY 3, 1996

Subsection (b)(1) of the first section of the Hate Crime Statistics Act (28 U.S.C. 

534 note) is amended by striking “for the calendar year 1990 and each succeeding 4 

calendar years,” and by inserting “for each calendar year.”

Approved July 3, 1996.

PUBLIC LAW 111-84—OCTOBER 28, 2009

On October 28, 2009, the President signed into law the Matthew Shepard and James 

Byrd, Jr. Hate Crimes Prevention Act, under Division E. P.L. 111-84, the National Defense 

Authorization Act for Fiscal Year 2010. This Act also complements a 1968 United States federal 

hate-crime law. The new law, 18 U.S.C. §249, includes crimes motivated by a victim’s actual or 

perceived gender, sexual orientation, gender identity, religion, race, color, national origin, or 

disability. The Matthew Shepard and James Byrd Jr, Act specifically states under Sec. 4709. 

Statistics.: 

Subsection (b)(1) of the first section of the Hate Crime Statistics Act (28 U.S.C. 

534 note) is amended by inserting “gender and gender identity,” after “race;” and 

Subsection (b)(5) of the first section of the Hate Crime Statistics Act (28 U.S.C. 

534 note) is amended by inserting “including data about crimes committed by, and crimes 

directed against, juvenile,” after “data acquired under this section.”
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CHRONOLOGY OF ACT AND AMENDMENTS

1990—Congress passed the Hate Crime Statistics Act to collect data “about crimes that manifest 

evidence of prejudice based on race, religion, sexual orientation, or ethnicity.”

1994—The Violent Crime and Law Enforcement Act of 1994 amended The Act to include bias 

against persons with disabilities.

1996—The Church Arson Prevention Act removed the sunset clause from the original statute 

and mandated that hate crime data collection become a permanent part of the FBI UCR Program.

2009—The Matthew Shepard and James Byrd, Jr. Hate Crimes Prevention Act amended the 

FBI’s collection to include statistics on hate crimes based on gender and gender identity 

prejudices, as well as hate crimes committed by/directed against juveniles.
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APPENDIX II

SUBMITTING HATE CRIME DATA TO THE FBI UCR PROGRAM

There are two methods for reporting hate crime data to the FBI UCR Program: 

the hate crime data element in the NIBRS and the Hate Crime Incident Report and the Quarterly 

Hate Crime Report. The offenses that are reported must be reported in accordance with the 

requirements of the NIBRS or SRS, depending on which system is applicable.

A. NIBRS Hate Crime Reporting 

1. Who submits hate crime data in the NIBRS format? Agencies participating 

in the NIBRS include the hate crime data element in their electronic data submissions. 

2. How are the data transmitted? NIBRS participants use Data Element 8A, 

Bias Motivation, as a mandatory data element with the electronic submission of each Group A 

offense at the end of the Offense Segment (Level 2). The technical and coding requirements for 

reporting data in the NIBRS are provided in the NIBRS Technical Specification, which is 

available at www.fbi.gov/about-us/cjis/ucr/nibrs. The submission of the Hate Crime Incident 

Report and the Quarterly Hate Crime Report are not necessary for NIBRS participants.

3. To which offenses does the hate crime data element apply? The hate crime 

data element applies to all Group A offenses. They are listed below. (The UCR Offense Codes

for the NIBRS are also included.)

200 = Arson

Assault Offenses:

13A = Aggravated Assault

13B = Simple Assault

13C = Intimidation

510 = Bribery

220 = Burglary/Breaking and Entering

250 = Counterfeiting/Forgery

290 = Destruction/Damage/Vandalism of Property

Drug/Narcotic Offenses: 

35A = Drug/Narcotic Violations

35B = Drug/Equipment Violations

270 = Embezzlement 
Version 1.0, 12/19/2012 38

210 = Extortion/Blackmail

Fraud Offenses: 

26A = False Pretenses/Swindle/Confidence Game 

26B = Credit Card/Automated Teller Machine Fraud 

26C = Impersonation 

26D = Welfare Fraud 

26E = Wire Fraud

Gambling Offenses: 

39A = Betting/Wagering 

39B = Operating/Promoting/Assisting Gambling 

39C = Gambling Equipment Violations 

39D = Sports Tampering

Homicide Offenses: 

09A = Murder and Nonnegligent Manslaughter

09B = Negligent Manslaughter

Human Trafficking Offenses:

64A = Commercial Sex Acts

64B = Involuntary Servitude

100 = Kidnapping/Abduction

Larceny/Theft Offenses: 

23A = Pocket-picking 

23B = Purse-snatching 

23C = Shoplifting 

23D = Theft From Building 

23E = Theft From Coin-Operated Machine or Device 

23F = Theft From Motor Vehicle 

23G = Theft of Motor Vehicle Parts or Accessories 

23H = All Other Larceny

240 = Motor Vehicle Theft 

370 = Pornography/Obscene Material

Prostitution Offenses: 

40A = Prostitution 

40B = Assisting or Promoting Prostitution 

40C = Purchasing Prostitution

120 = Robbery
Version 1.0, 12/19/2012 39

. Sex Offenses: 

11A = Rape 

11B = Sodomy 

11C = Sexual Assault With An Object 

11D = Fondling 

36A = Incest 

36B = Statutory Rape 

280 = Stolen Property Offenses 

520 = Weapon Law Violations 

The definitions of these offenses for reporting hate crime in the NIBRS can be found in 

Appendix III. 

4. How does NIBRS Data Element 8A, Bias Motivation, work? This data 

element indicates whether the offender was motivated, in whole or in part, to commit the offense 

because of his or her bias against a race, religion, disability, sexual orientation, ethnicity, gender, 

or gender identity. Due to the difficulty of ascertaining the offender’s subjective motivation, bias 

is to be reported only if investigation reveals sufficient objective facts to lead a reasonable and 

prudent person to conclude that the offender’s actions were motivated, in whole or in part, by 

bias. The most appropriate of the following codes is to be entered into the data element:

Race:

11 = Anti-White

12 = Anti-Black or African American

13 = Anti-American Indian or Alaska Native

14 = Anti-Asian 

15 = Anti-Multiple Races, Group3

16 = Anti-Native Hawaiian or Other Pacific Islander

Religion:

21 = Anti-Jewish

22 = Anti-Catholic

23 = Anti-Protestant

24 = Anti-Islamic (Muslim)

25 = Anti-Other Religion

26 = Anti-Multiple Religions, Group3

27 = Anti-Atheism/Agnosticism

__________________________________

3Report Anti-Multiple Races, Group if more than one victim in the incident is a different 

race. This also applies to the Anti-Multiple Religions, Group.
Version 1.0, 12/19/2012 40

Ethnicity:

32 = Anti-Hispanic or Latino

33 = Anti-Not Hispanic or Latino

Sexual Orientation:

41 = Anti-Gay (Male)

42 = Anti-Lesbian

43 = Anti-Lesbian, Gay, Bisexual, or Transgender (Mixed Group)4

44 = Anti-Heterosexual

45 = Anti-Bisexual

Disability:

51 = Anti-Physical Disability

52 = Anti-Mental Disability

Gender:

61 = Anti-Male 

62 = Anti-Female

Gender Identity:

71 = Anti-Transgender

72 = Anti-Gender Non-Conforming

None/Unknown: (NIBRS submissions only) 

88 = None (no bias)

99 = Unknown (offender’s motivation not known)

Note: In the NIBRS, incidents which do not involve any facts indicating bias motivation on the 

part of the offender are to be coded as 88 = None, while incidents involving ambiguous facts 

(i.e., where some facts are present but are not conclusive) should be coded as 99 = Unknown. 

The intent of bias motivation code 99 = Unknown is to allow an agency to report a crime in 

which bias motivation is unknown or when the investigation has not been completed. When it is 

determined the presence of bias motivation is conclusive, the reported bias motivation code 

99 = Unknown should be modified to indicate the results of the subsequent investigation. Law 

enforcement agencies should be diligent in modifying these types of situations as they become 

known. A review of year-end hate crime data should have few, if any, hate crimes coded as 

99 = Unknown.

__________________________________

4

Lesbian, Gay, Bisexual, or Transgender is referred to as LGBT.
Version 1.0, 12/19/2012 41

B. SRS Hate Crime Reporting 

1. Who submits the Hate Crime Incident Report and the Quarterly Hate 

Crime Report? Agencies that participate in the SRS submit the Hate Crime Incident Report and

the Quarterly Hate Crime Report, along with the FBI UCR Program requirements; i.e., the 

offenses which are reported using the incident report must also be reported in accordance with 

the requirements of the SRS.

2. How are the data transmitted? (a) Agencies may submit the Hate Crime 

Incident Report and the Quarterly Hate Crime Report and (b) State UCR Programs which 

transmit their agencies’ data in an electronic format can obtain electronic data submission 

specifications from the FBI UCR Program in order to include hate crime data as part of their 

regular SRS submissions. The hate crime data submission specifications are provided in Hate 

Crime Electronic Submission Specifications for the Summary Reporting System, which is 

available at www.fbi.gov/about-us/cjis/ucr/hate-crime.

3. What does the Hate Crime Incident Report and the Quarterly Hate Crime 

Report look like? The Hate Crime Incident Report and the Quarterly Hate Crime Report are 

available at www.fbi.gov/about-us/cjis/ucr/reportingforms/quarterly-hate-crime-report.

4. What offenses are to be reported? SRS agencies should use the Hate Crime 

Incident Report to report the following offense categories: 

01 = Murder and Nonnegligent Manslaughter 

02 = Rape 

03 = Robbery 

04 = Aggravated Assault 

05 = Burglary 

06 = Larceny-theft 

07 = Motor Vehicle Theft 

08 = Arson 

09 = Simple Assault 

10 = Intimidation 

11 = Destruction/Damage/Vandalism of Property 

The definitions of these offenses for reporting hate crime on the Hate Crime Incident Report can 

be found in Appendix III. 

5. Additional instructions — The following additional instructions are 

applicable to law enforcement agencies submitting Hate Crime Incident Reports:

a. Simple Assault and Intimidation — In the SRS, Simple Assault and 

Intimidation are not reported separately. Both are reported on the Return A—Monthly Return of 
Version 1.0, 12/19/2012 42

Offenses Known to the Police form as Other Assaults-Simple, Not Aggravated. For the purpose 

of hate crime reporting, SRS agencies should report Simple Assault and Intimidation separately 

using the definitions found in Appendix III.

b. Destruction/Damage/Vandalism of Property — In the SRS, 

Vandalism is reported on the Age, Sex, Race, and Ethnicity of Persons Arrested form only when 

arrests occur. Likewise, destruction and damage of property, which may be reported as either 

Vandalism or All Other Offenses depending on the facts of the case, are reported only when 

arrests occur. However, for the purpose of hate crime reporting, all three offenses fall into the 

category of Destruction/Damage/Vandalism of Property and should be reported regardless of 

whether arrests have taken place. The offense is defined in Appendix III.

c. Nonapplicability of the Hierarchy Rule — In the SRS under the 

Hierarchy Rule, only the most serious Part I offense in a multiple-offense incident is to be 

reported. However, for hate crime reporting purposes, all of the above-mentioned offenses 

which were identified as bias motivated and occurred during the incident should be reported. 

d. UCR Offense and Code Segment — The number of victims involved 

in each offense for which bias/hate motivation has been determined should be listed. When 

Individual is reported as the Victim Type, the Total Number of Victims, Total Number of 

Victims 18 and over, and Total Number of Victims under 18 must also be reported. Similar 

information on the offender, if known, is collected.

In the event of multiple offense codes and victims, only those for which bias/hate 

motivation exists should be listed. Do not list an offense code and its victims when the 

motivation is clearly not bias motivated or when the motivation is unknown.

For example, a robbery occurred at a bar and its patrons were robbed by two 

offenders. During the robbery, a female Asian patron was raped by one of the offenders. 

Subsequent investigation reveals that while the robbery motive did not involve bias, the rape was 

bias motivated. Therefore, only the rape should be reported as a hate crime.

e. Updating — For updating purposes, a copy of the report should be 

retained by the agency. Corrections/updates should be accomplished by sending a corrected 

Quarterly Hate Crime Report and Hate Crime Incident Report with changes made and 

“adjustment” indicated or by sending an adjusted record in an electronic submission. Incidents 

can be deleted by simply identifying them on the Quarterly Hate Crime Report Summary Page.

Note: In the hate crime data collection, more than one offense can be reported within each 

incident once it is determined the offense(s) was motivated by bias. Certain combinations of 

offenses, however, cannot occur to the same victim. Specifically, Mutually Exclusive offenses 

are ones that cannot occur to the same victim according to UCR definitions. Lesser Included 
Version 1.0, 12/19/2012 43

offenses are ones where one offense is an element of another offense and cannot be reported as 

having happened to the victim along with the other offense. For example:

Aggravated Assault is a lesser included offense of Murder, Rape, Sodomy, Sexual 

Assault With an Object, and Robbery.

Incest and Statutory Rape are mutually exclusive offenses and cannot occur with rape. 

Incest and Statutory Rape involve consent, while Rape is without the consent of the 

victim.

If reporting a hate crime on the Hate Crime Incident Report, only the Lesser Included offenses 

are applicable. Lesser Included and Mutually Exclusive Offenses are defined as follows:

Murder and Nonnegligent Manslaughter

Mutually Exclusive: Negligent Manslaughter

Lesser Included: Aggravated Assault, Simple Assault, and Intimidation

Negligent Manslaughter

Mutually Exclusive: Murder, Aggravated Assault, Simple Assault, and Intimidation

Rape

Mutually Exclusive: Incest and Statutory Rape

Lesser Included: Aggravated Assault, Simple Assault, Intimidation, and Fondling

Sodomy

Mutually Exclusive: Incest and Statutory Rape

Lesser Included: Aggravated Assault, Simple Assault, Intimidation, and Fondling

Sexual Assault With An Object

Mutually Exclusive: Incest and Statutory Rape

Lesser Included: Aggravated Assault, Simple Assault, Intimidation, and Fondling 

Fondling

Mutually Exclusive: Incest and Statutory Rape

Lesser Included: Simple Assault and Intimidation

Robbery

Lesser Included: Aggravated Assault, Simple Assault, Intimidation, Larceny-Theft Offenses,

and Motor Vehicle Theft

Aggravated Assault

Lesser Included: Simple Assault and Intimidation

Simple Assault
Version 1.0, 12/19/2012 44

Lesser Included: Intimidation

Incest

Mutually Exclusive: Rape, Sodomy, Sexual Assault With An Object, and Fondling

Statutory Rape

Mutually Exclusive: Rape, Sodomy, Sexual Assault With An Object, and Fondling
Version 1.0, 12/19/2012 45

APPENDIX III

UCR OFFENSE DEFINITIONS

A. Offenses and Definitions Collected in the NIBRS

Arson—To unlawfully and intentionally damage, or attempt to damage, any real or personal 

property by fire or incendiary device.

Assault Offenses—An unlawful attack by one person upon another. 

Aggravated Assault—An unlawful attack by one person upon another wherein the offender 

uses a weapon or displays it in a threatening manner, or the victim suffers obvious severe or 

aggravated bodily injury involving apparent broken bones, loss of teeth, possible internal 

injury, severe laceration, or loss of consciousness. This also includes assault with disease (as 

in cases when the offender is aware that he/she is infected with a deadly disease and 

deliberately attempts to inflict the disease by biting, spitting, etc.).

Simple Assault—An unlawful physical attack by one person upon another where neither the 

offender displays a weapon, nor the victim suffers obvious severe or aggravated bodily injury 

involving apparent broken bones, loss of teeth, possible internal injury, severe laceration, or 

loss of consciousness.

Intimidation—To unlawfully place another person in reasonable fear of bodily harm 

through the use of threatening words and/or other conduct, but without displaying a weapon 

or subjecting the victim to actual physical attack. 

Bribery—(Except “Sports Bribery”) The offering, giving, receiving, or soliciting of anything of 

value (i.e., a bribe, gratuity, or kickback) to sway the judgment or action of a person in a position 

of trust or influence. 

Burglary/Breaking and Entering—The unlawful entry into a building or other structure with 

the intent to commit a felony or a theft.

Counterfeiting/Forgery—The altering, copying, or imitation of something, without authority or 

right, with the intent to deceive or defraud by passing the copy or thing altered or imitated as that 

which is original or genuine; or the selling, buying, or possession of an altered, copied, or 

imitated thing with the intent to deceive or defraud.

Destruction/Damage/Vandalism of Property—(Except “Arson”) To willfully or maliciously 

destroy, damage, deface, or otherwise injure real or personal property without the consent of the 

owner or the person having custody or control of it.
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Drug/Narcotic Offenses—(Except “Driving Under the Influence”) The violation of laws 

prohibiting the production, distribution, and/or use of certain controlled substances and the 

equipment or devices utilized in their preparation and/or use.

Drug/Narcotic Violations—The unlawful cultivation, manufacture, distribution, sale, 

purchase, use, possession, transportation, or importation of any controlled drug or narcotic 

substance.

Drug Equipment Violations—The unlawful manufacture, sale, purchase, possession, or 

transportation of equipment or devices utilized in preparing and/or using drugs or narcotics.

Embezzlement—The unlawful misappropriation by an offender to his/her own use or purpose of 

money, property, or some other thing of value entrusted to his/her care, custody, or control.

Extortion/Blackmail—To unlawfully obtain money, property, or any other thing of value, either 

tangible or intangible, through the use or threat of force, misuse of authority, threat of criminal 

prosecution, threat of destruction of reputation or social standing, or through other coercive 

means.

Fraud Offenses—(Except “Counterfeiting/Forgery” and “Bad Checks”) The intentional 

perversion of the truth for the purpose of inducing another person, or other entity, in reliance 

upon it to part with something of value or to surrender a legal right. 

False Pretenses/Swindle/Confidence Game—The intentional misrepresentation of existing 

fact or condition, or the use of some other deceptive scheme or device, to obtain money, 

goods, or other things of value.

Credit Card/Automated Teller Machine Fraud—The unlawful use of a credit (or debit) 

card or automated teller machine for fraudulent purposes.

Impersonation—Falsely representing one’s identity or position, and acting in the character 

or position thus unlawfully assumed, to deceive others and thereby gain a profit or advantage, 

enjoy some right or privilege, or subject another person or entity to an expense, charge, or 

liability which would not have otherwise been incurred.

Welfare Fraud—The use of deceitful statements, practices, or devices to unlawfully obtain 

welfare benefits.

Wire Fraud—The use of an electric or electronic communications facility to intentionally 

transmit a false and/or deceptive message in furtherance of a fraudulent activity.

Gambling Offenses—To unlawfully bet or wager money or something else of value; assist, 

promote, or operate a game of chance for money or some other stake; possess or transmit 

wagering information; manufacture, sell, purchase, possess, or transport gambling equipment, 

devices or goods; or tamper with the outcome of a sporting event or contest to gain a gambling 

advantage.
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Betting/Wagering—To unlawfully stake money or something else of value on the 

happening of an uncertain event or on the ascertainment of a fact in dispute.

Operating/Promoting/Assisting Gambling—To unlawfully operate, promote, or assist in 

the operation of a game of chance, lottery, or other gambling activity. 

Gambling Equipment Violations—To unlawfully manufacture, sell, buy, possess, or 

transport equipment, devices, and/or goods used for gambling purposes.

Sports Tampering—To unlawfully alter, meddle in, or otherwise interfere with a sporting 

contest or event for the purpose of gaining a gambling advantage. 

Homicide Offenses—The killing of one human being by another.

Murder and Nonnegligent Manslaughter—The willful (nonnegligent) killing of one 

human being by another.

Negligent Manslaughter—The killing of another person through negligence. 

Human Trafficking Offenses—The inducement of a person to perform a commercial sex act, or 

labor, or services, through force, fraud, or coercion. Human trafficking has also occurred if a 

person under 18 years of age has been induced, or enticed, regardless of force, fraud, or coercion, 

to perform a commercial sex act.

Commercial Sex Acts––Inducing a person by force, fraud, or coercion to participate in 

commercial sex acts, or in which the person induced to perform such act(s) has not attained 

18 years of age.

Involuntary Servitude––The obtaining of a person(s) through recruitment, harboring, 

transportation, or provision, and subjecting such persons by force, fraud, or coercion into 

voluntary servitude, peonage, debt bondage, or slavery (not to include commercial sex acts).

Kidnapping/Abduction—The unlawful seizure, transportation, and/or detention of a person 

against his/her will, or of a minor without the consent of his/her custodial parent(s) or legal 

guardian. 

Larceny/Theft Offenses—The unlawful taking, carrying, leading, or riding away of property 

from the possession, or constructive possession, of another person.

Pocket-picking—The theft of articles from another person’s physical possession by stealth 

where the victim usually does not become immediately aware of the theft.

Purse-snatching—The grabbing or snatching of a purse, handbag, etc., from the physical 

possession of another person. 
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Shoplifting—The theft, by someone other than an employee of the victim, of goods or 

merchandise exposed for sale.

Theft From Building—A theft from within a building which is either open to the general 

public or where the offender has legal access.

Theft From Coin-Operated Machine or Device—A theft from a machine or device which 

is operated or activated by the use of coins.

Theft From Motor Vehicle—(Except “Theft of Motor Vehicle Parts or Accessories”) The 

theft of articles from a motor vehicle, whether locked or unlocked.

Theft of Motor Vehicle Parts or Accessories—The theft of any part or accessory affixed to 

the interior or exterior of a motor vehicle in a manner which would make the item an 

attachment of the vehicle, or necessary for its operation.

All Other Larceny—All thefts which do not fit any of the definitions of the specific 

subcategories of Larceny/Theft listed above. 

Motor Vehicle Theft—The theft of a motor vehicle. 

Pornography/Obscene Material—The violation of laws or ordinances prohibiting the 

manufacture, publishing, sale, purchase, or possession of sexually explicit material, e.g., 

literature, photographs, etc.

Prostitution Offenses—To unlawfully engage in or promote sexual activities for anything of 

value.

Prostitution—To engage in commercial sex acts for anything of value. 

Assisting or Promoting Prostitution—To solicit customers or transport persons for 

prostitution purposes; to own, manage, or operate a dwelling or other establishment for the 

purpose of providing a place where prostitution is performed; or to otherwise assist or 

promote prostitution.

Purchasing Prostitution—To purchase or trade anything of value for commercial sex acts.

Robbery—The taking, or attempting to take, anything of value under confrontational 

circumstances from the control, custody, or care of another person by force or threat of force or 

violence and/or by putting the victim in fear of immediate harm. 

Sex Offenses—Any sexual act directed against another person, without the consent of the victim 

including instances where the victim is incapable of giving consent.

Rape—(Except “Statutory Rape”) The carnal knowledge of a person, without the consent of 

the victim, including instances where the victim is incapable of giving consent because of 

his/her youth or because of his/her temporary or permanent mental or physical incapacity. 
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Sodomy—Oral or anal sexual intercourse with another person, without the consent of the 

victim including instances where the victim is incapable of giving consent because of his/her 

youth or because of his/her temporary or permanent mental or physical incapacity.

Sexual Assault With An Object—To use an object or instrument to unlawfully penetrate, 

however slightly, the genital or anal opening of the body of another person, including 

instances where the victim is incapable of giving consent because of his/her youth or because 

of his/her temporary or permanent mental or physical incapacity. 

Fondling—The touching of the private body parts of another person for the purpose of 

sexual gratification, without the consent of the victim, including instances where the victim is 

incapable of giving consent because of his/her youth or because of his/her temporary or 

permanent mental or physical incapacity.

Sex Offenses, Nonforcible—(Except “Prostitution Offenses”) Unlawful, nonforcible sexual 

intercourse.

Incest—Nonforcible sexual intercourse between persons who are related to each other within 

the degrees wherein marriage is prohibited by law.

Statutory Rape—Nonforcible sexual intercourse with a person who is under the statutory 

age of consent. 

Stolen Property Offenses—Receiving, buying, selling, possessing, concealing, or transporting 

any property with the knowledge that it has been unlawfully taken, as by Burglary, 

Embezzlement, Fraud, Larceny, Robbery, etc.

Weapon Law Violations—The violation of laws or ordinances prohibiting the manufacture, 

sale, purchase, transportation, possession, concealment, or use of firearms, cutting instruments, 

explosives, incendiary devices, or other deadly weapons.

B. Offenses and Definitions Collected on the Hate Crime Incident Report

Murder and Nonnegligent Manslaughter—The willful (nonnegligent) killing of one human 

being by another. Deaths caused by negligence, attempts to kill, assaults to kill, suicides, 

accidental deaths, and justifiable homicides are excluded.

Rape—Penetration, no matter how slight, of the vagina or anus with any body part or object, or 

oral penetration by a sex organ of another person, without the consent of the victim.

Robbery—The taking or attempting to take anything of value from the care, custody, or control 

of a person or persons by force or threat of force or violence and/or by putting the victim in fear. 

Aggravated Assault—An unlawful attack by one person upon another for the purpose of 

inflicting severe or aggravated bodily injury. This type of assault usually is accompanied by the 
Version 1.0, 12/19/2012 50

use of a weapon or by means likely to produce death or great bodily harm. Simple assaults are 

excluded. 

Burglary (Breaking or Entering)—The unlawful entry of a structure to commit a felony or a 

theft. Attempted forcible entry is included. 

Larceny-theft (Except Motor Vehicle Theft)—The unlawful taking, carrying, leading, or riding 

away of property from the possession or constructive possession of another. Examples are thefts 

of bicycles or automobile accessories, shoplifting, pocket-picking, or the stealing of any property 

or article which is not taken by force and violence or by fraud. Attempted larcenies are included. 

Embezzlement, confidence games, forgery, worthless checks, etc., are excluded.

Motor Vehicle Theft—The theft or attempted theft of a motor vehicle. A motor vehicle is self–

propelled and runs on the surface and not on rails. Specifically excluded from this category are 

motorboats, construction equipment, airplanes, and farming equipment. 

Arson—Any willful or malicious burning or attempt to burn, with or without intent to defraud, a 

dwelling house, public building, motor vehicle or aircraft, personal property of another, etc. 

Simple Assault—An unlawful physical attack by one person upon another where neither the 

offender displays a weapon, nor the victim suffers obvious severe or aggravated bodily injury 

involving apparent broken bones, loss of teeth, possible internal injury, severe laceration, or loss 

of consciousness.

Intimidation—To unlawfully place another person in reasonable fear of bodily harm through the 

use of threatening words and/or other conduct, but without displaying a weapon or subjecting the 

victim to actual physical attack. 

Destruction/Damage/Vandalism of Property—To willfully or maliciously destroy, damage, 

deface, or otherwise injure real or personal property without the consent of the owner or the 

person having custody or control of it.
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APPENDIX IV

UCR HATE CRIME STATISTICS DATA

The FBI annually publishes Hate Crime Statistics. This publication includes data 

on criminal offenses that are motivated, in whole or in part, by the offender’s bias against a race, 

religion, disability, sexual orientation, ethnicity, gender, or gender identity.

More detailed data (e.g., the subcategory breakdowns of bias motivations, the 

known offenders’ races, and the victim types for each agency submitting hate crime data to the

FBI UCR Program) are furnished in the FBI UCR Program’s Hate Crime Master Files. For 

information on obtaining these data, please contact the FBI’s Criminal Justice Information 

Services Division via e-mail at cjis_comm@leo.gov or by telephone at (304) 625-4995.
Version 1.0, 12/19/2012 52

APPENDIX V

OMB RACE DEFINITIONS

The OMB is part of the Executive Office of the President. The OMB is 

comprised of four resource management offices, which were created by statute. The Paperwork 

Reduction Act (PRA) of 1995 (44 U.S.C. Chapter 35) established the Office of Information and 

Regulatory Affairs within the OMB to develop and oversee the implementation of Governmentwide policies, principles, standards, and guidelines concerning statistical collection procedures 

and methods. The PRA covers all aspects of Federal information resources management, 

including OMB review and approval of agency information collection. This oversight involves a 

triennial review and approval of all FBI UCR Program reporting forms. Therefore, compliance 

with the OMB’s directives is imperative to the FBI UCR Program’s operations.

In 1994, in response to the need to reflect the increasing diversity of the 

population of the United States, OMB began a comprehensive review of the racial and ethnic 

categories being used in collaboration with the Interagency Committee for the Review of the 

Racial and Ethnic Standards. The OMB accepted the recommendations of the Interagency 

Committee in 1997 and released standards for federal data on race. Since the FBI UCR Program 

had been granted a temporary variance, the program held the changes in abeyance until its data 

submission methods were updated. In order to conform to the new guidelines, the FBI issued its 

own guidance on how law enforcement agencies should collect and maintain race and ethnicity 

data. These revised standards have two categories for data on ethnicity and five minimum 

categories for data on race. The new categories and their definitions are as follow: 

Ethnic Categories (Hispanic or Latino and Not Hispanic or Latino) 

Hispanic or Latino: A person of Cuban, Mexican, Puerto Rican, South or Central American, or 

other Spanish culture or origin, regardless of race. The term, “Spanish origin,” can be used in 

addition to “Hispanic or Latino.” 

Racial Categories 

American Indian or Alaska Native: A person having origins in any of the original peoples of 

North and South America (including Central America) and who maintains tribal affiliation or 

community attachment. 

Asian: A person having origins in any of the original peoples of the Far East, Southeast Asia, or 

the Indian subcontinent including, for example, Cambodia, China, India, Japan, Korea, Malaysia, 

Pakistan, the Philippine Islands, Thailand, and Vietnam. 

Black or African American: A person having origins in any of the black racial groups of Africa. 
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Native Hawaiian or Other Pacific Islander: A person having origins in any of the original 

peoples of Hawaii, Guam, Samoa, or other Pacific Islands. 

White: A person having origins in any of the original peoples of Europe, the Middle East, or 

North Africa.
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APPENDIX VI

ORGANIZATIONS OFFERING INFORMATION CONCERNING 

ANTI-BIAS EDUCATION

American Association of University Women

1111 Sixteenth Street, NW 

Washington, DC 20036

www.aauw.org

Anti-Defamation League

605 Third Avenue

New York, New York 10158-3560

www.adl.org

Human Rights Campaign 

1640 Rhode Island Avenue, NW

Washington, DC 20036

www.hrc.org

International Association of Chiefs of Police

515 North Washington Street

Alexandria, Virginia 22314

http://www.theiacp.org

The Leadership Conference on Civil and Human Rights

10th Floor

1629 K Street, NW

Washington, DC 20006

www.civilrights.org

National Center for Transgender Equality

Suite 700

1325 Massachusetts Avenue, NW

Washington, DC 20005

http://transequality.org

National Council of Jewish Women (NCJW)

Suite 1901 

475 Riverside Drive

New York, New York 10115

http://www.ncjw.org
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National Disability Rights Network

Suite 211

900 Second Street, NE

Washington, DC 20002

http://www.napas.org

National Gay and Lesbian Task Force

6

th Floor

1325 Massachusetts Avenue, NW

Washington, DC 20005

www.theTaskForce.org
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APPENDIX VII

DEPARTMENT OF JUSTICE, COMMUNITY RELATIONS SERVICE, 

REGIONAL OFFICES 

 The Community Relations Service (CRS) serves as “America’s Peacemaker” for 

the U.S. Department of Justice, by responding to community conflicts that arise from differences 

of race, color, and national origin. CRS helps communities mediate disputes, provides conflict 

resolution training, and helps communities enhance their capacity to independently prevent and 

resolve future conflicts.

New England Regional Office (Region I—CT, MA, ME, NH, RI, VT)

Suite 222

408 Atlantic Avenue 

Boston, Massachusetts 02110

Telephone: (617) 424-5715 

Facsimile: (617) 424-5727

Northeast Regional Office (Region II—NJ, NY, Puerto Rico, Virgin Islands)

Suite 36-118

26 Federal Plaza

New York, New York 10278 

Telephone: (212) 264-0700 

Facsimile: (212) 264-2143

Mid-Atlantic Regional Office (Region III—DE, DC, MD, PA, VA, WV)

Suite 208

200 2nd & Chestnut Street

Philadelphia, Pennsylvania 19106

Telephone: (215) 597-2344

Facsimile: (215) 597-9148 

Southeast Regional Office (Region IV—AL, FL, GA, KY, MS, NC, SC, TN)

Suite 900

75 Piedmont Avenue, NE 

Atlanta, Georgia 30303 

Telephone: (404) 331-6883 

Facsimile: (404) 331-4471 

Midwest Regional Office (Region V—IL, IN, MI, MN, OH, WI)

Room 2130

230 South Dearborn Street 

Chicago, Illinois 60604

Telephone: (312) 353-4391

Facsimile: (312) 353-4390
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Southwest Regional Office (Region VI—AR, LA, NM, OK, TX)

Suite 2050

1999 Bryan Street 

Dallas, Texas 75201

Telephone: (214) 655-8175 

Facsimile: (214) 655-8184

Central Regional Office (Region VII—IA, KS, MO, NE)

Suite 0802

601 E. 12th Street 

Kansas City, Missouri 64106

Telephone: (816) 426-7434

Facsimile: (816) 426-7441

Rocky Mountain Regional Office (Region VIII—CO, MT, ND, SD, UT, WY)

Suite 650

1244 Speer Boulevard 

Denver, Colorado 80204-3584

Telephone: (303) 844-2973 

Facsimile: (303) 844-2907

Western Regional Office (Region IX—AZ, CA, HI, NV, Guam)

Suite 1880

888 S. Figueroa Street 

Los Angeles, California 90017

Telephone: (213) 894-2941 

Facsimile: (213) 894-2880

Northwest Regional Office (Region X—AK, ID, OR, WA)

Suite 1808

915 Second Avenue 

Seattle, Washington 98174

Telephone: (206) 220-6706

Facsimile: (206) 220-6706

Field Offices

Suite 624

51 S.W. First Avenue 

Miami, Florida 33130

Telephone: (305) 536-5206

Facsimile: (305) 536-6778

Suite 1404

211 W. Fort Street 

Detroit, Michigan 48226

Telephone: (313) 226-4010 

Facsimile: (313) 226-2568
Version 1.0, 12/19/2012 58

Suite 12605

515 Rusk Avenue 

Houston, Texas 77002

Telephone: (713) 718-4861 

Facsimile: (713) 718-4862

Suite 3-330

90 Seventh Street 

San Francisco, California 94103

Telephone: (415) 744-6565 

Facsimile: (415) 744-6590