Community Relations Service, U.S. Department of Justice Police Use of Force ❒ 1

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The Community Relations Service (CRS), an agency of

the U.S. Department of Justice, is the Federal

government’s “peacemaker” for community conflicts

and tensions arising from differences of race, color and

national origin. Created by the Civil Rights Act of 1964,

CRS is the only Federal agency whose purpose is to

assist State and local units of government, private and

public organizations, and community groups with preventing and resolving racial and ethnic tensions, conflicts, and civil disorders, and in restoring racial stability

and harmony.

When and how to use force is one of the most difficult

and controversial decisions a police officer will make

in the course of his or her duties. This decision, made in

a matter of seconds and often without complete information, can have serious and far-reaching consequences.

Where there are good police-community relations and

high confidence within the minority community in the

integrity and accountability of the police department,

a use of force incident may result in little turmoil. However, in communities where there is a lack of confidence between police and minority residents and a

perception that complaints about police misconduct

will not be addressed fairly, no issue can be more racially explosive or more easily lead to violent disturbances. Under these circumstances, what can communities and police departments do to ease racial

tensions, open lines of communication, and rebuild

trust?

Our 40 years of experience in working with racial conflict and violence have taught us that community stability and safety can be secured for everyone when

police and residents join together in cooperative efforts to build trust and confidence. There are specific

steps which can be taken to reduce the prospect of

turmoil following a use of force incident. Over the

longer term, there are also policies and practices

which can be put into place that will help to improve

the underlying conditions of police community relations.

City officials, police executives, and community leaders can take some practical steps to prevent community racial conflict associated with police use of force

incidents and to improve police policies and practices.

Examples of CRS assistance to local communities can

be found in this publication.

Potential Flash Points

Whenever there is an incident of police use of force,

especially one involving the death of a person of color

or distinctive ethnic origin, a predictable set of flash

points follows. Each flash point can potentially lead to

conflict, violence, and disorder. However, when police, officials, and community leaders take timely and

appropriate preventive action, community peace can

POLICE USE OF FORCE

Addressing Community Racial Tensions

CRS

U.S. Department of Justice

Community Relations Service
Community Relations Service, U.S. Department of Justice Police Use of Force ❒ 2

be secured and maintained. How communities react

to these flash points also will be influenced by other

variables, such as the existing climate of police community relations, the nature and circumstances of the

use of force incident, media coverage, and rumors.

Flash Point: Initial Incident

There are certain predictable flash points that commonly occur after a police use of force incident. Whenever an incident involves a police shooting or use of

force, officers must be aware that their actions are

not viewed in a vacuum. There are usually witnesses

to an incident. How the incident is perceived will be

subject to many interpretations. When distrust between

police and the community is present, any police action will be subject to suspicion and scrutiny.

Flash Point: Initial Law Enforcement

Response

What the first responding officers to the incident do

upon arriving on the scene is crucial to maintaining

community peace and preserving the scene for investigators. The department’s standard operating procedure for response to police shootings and use of

force situations must be immediately implemented. It

is best when a high-ranking officer is on the scene and

available to listen to community or family concerns

and assure them of a full investigation. Officers involved

in the shooting should depart from the scene as soon

as possible and a thorough, yet expedient, investigation should follow with the knowledge that usually tensions will lower when the police leave the site entirely.

Leaving telephone and contact numbers demonstrates concern and may lead to cooperation and

open communication.

Flash Point: Media Coverage

Press coverage can affect the level of community tension following a police incident. A straightforward objective statement of non-confidential information by

the Department can go a long way in assuring the

public that the situation is under control. This statement

should contain the circumstances that preceded any

police response and the process for and resources allocated to the investigation.

Press announcements should be carefully drafted to

avoid derogatory remarks about a suspect, victim, or

community. Premature unsubstantiated judgment of

police actions by the department can undermine the

public’s perception of fairness and objectivity. An expression of concern by officials about the loss of life,

directly communicated to members of the victim’s

family and community leaders, will help minimize community tensions. A public announcement of the

department’s investigative process assures the public

that an orderly investigation and objective review of

the incident will be conducted. These steps will help

head off potentially inflammatory rumors.

Flash Point: Protest Rallies and Marches

Protest rallies and marches allow the community to

express its frustration and anger about an incident and

can be beneficial safety valves to lower tensions. They

also serve as opportunities for people to express their

grief and anguish. Plans can be developed which provide for community protest and also protect the peace

and harmony of the participants and community at

large.

Flash Point: Investigations

There should be no rush to judgment, but a full and

complete investigation governed by an established

protocol. Coordinating appropriate law enforcement

agencies at all levels, including investigators and prosecutors, can help assure the fairness of the investigation and gain public confidence in the outcome.

New York, New York - Following the shooting of an

unarmed African immigrant, CRS worked as a liaison

between police and event organizers. CRS also

worked with Federal, state and local officials on safe

crowd management and ground rules for demonstrations, thereby minimizing the possibility of violence.

Additionally, CRS trained community groups in

self-marshaling techniques and provided conciliation

services for disputes which arose during the demonstration.
Community Relations Service, U.S. Department of Justice Police Use of Force ❒ 3

In 1998, the National District Attorneys Association and

the U.S. Department of Justice entered into a Memorandum of Understanding for Federal, State and local

law enforcement agencies to implement a model protocol for the joint investigation of “color of law and

hate crime cases.” CRS can help law enforcement

officials meet with family and community members to

advise them about the process and progress of law

enforcement investigations.

An explanation of the resources allocated to the investigation, as well as the limitations of the law, helps

to alleviate a potentially destructive community reaction.

Flash Point: Results of Investigations

The results of a coroner’s inquest, grand jury findings,

police internal affairs investigation, and prosecutor’s

finding may increase community tension levels. How

the information is explained and made public has a

great impact on reducing the potential for community disruption.

CRS also keeps lines of communication open between

officials and community leaders, meeting with all parties before and after public reports of official investigations.

Coatesville, Pennsylvania - When there was a threat

of widespread disruption following a fatal police shooting involving an African-American man by a Caucasian police officer, CRS, at the request of the District

Attorney and City Manager, helped convene a community meeting with law enforcement officials, clergy,

and city officials immediately after the shooting. The

meeting helped dispel rumors and explain the status

of the investigation. CRS mediated discussions among

law enforcement, the city, and community groups.

During the investigation, CRS conducted an assessment of potential community tensions in the event

that the District Attorney determined there would be

no criminal prosecution.

Santa Maria, California - The shooting death of an

Hispanic-American youth by a police officer was followed by a series of angry protests, demonstrations,

and heightened racial tensions. At a community

meeting convened by the Latino Chamber of Commerce, CRS arranged for a clear explanation of the

investigatory and legal processes and the options

available to the victim’s family and community. The

meeting helped to defuse anger, and afforded an

opportunity for the media to report the proceedings

to the public at large.

New Brunswick, New Jersey - Following the shooting

of a young African-American woman by a Caucasian police officer, the local prosecutor, the U.S. Attorney, and the Civil Rights Division engaged in a joint

grand jury investigation. After the county prosecutor

determined that the police officer had acted in

self-defense, and the Civil Rights Division concluded

that the case could not be successfully prosecuted

under Civil Rights laws, CRS convened a meeting with

the victim’s family, community leaders, ministers, police department officials, the mayor, representative

from the local U.S. Congressman’s office, the Civil

Rights Division and U.S. Attorney representatives, to

brief the partners prior to the public announcement

of the decision. As a result of this meeting, the announcement was received by the community without incident.

Compton, California – An investigation of the shooting death of two Samoan-American brothers after a

call to police for assistance with a domestic dispute

determined that the facts did not warrant prosecution of the police officer. Prior to the public announcement of this controversial decision, CRS arranged for

a peaceful demonstration by the Samoan community and an opportunity to mediate police policies.

As a result, community tensions were reduced.
Community Relations Service, U.S. Department of Justice Police Use of Force ❒ 4

CRS assists local communities to develop contingency

plans for the safe expression of public sentiments prior

to the announcement of investigation reports, especially when the basis for the decisions is disputed.

Flash Point: Youth Response

How youth react to a police use of force incident may

be critical to community stability. Specific outreach

efforts should be directed to youth in the immediately

affected community. The danger of civil unrest can

thereby be reduced and steps can be taken in building positive relationships among youth, adults, and

police.

Flash Point: Collateral Incidents

Preventive measures should be taken to avoid incidents that might ignite further conflicts during the

course of an investigation. During such times, sensitivities and vulnerabilities are heightened.

Flash Point: Trial or Court Decision

When local community tensions are heightened by the

announcement of jury verdict or court decision, CRS

serves as a troubleshooter, resolving spontaneous conflicts “on the ground,” helping to control rumors with

accurate information, and serving as an impartial resource for all of the parties.

Comprehensive contingency planning can mobilize

law enforcement, city officials, civic leaders, the media, and the leadership of the affected communities

around the common interest of averting violence. CRS

can facilitate briefings for community leaders by legal

experts who explain the legal process and potential

outcomes, building community trust and confidence

in the justice system. When CRS receives advance

notice of verdicts, it helps communities prepare for

community reaction. Following public announcement

of verdicts, CRS can be on-site to serve as a communication link between police and the community.

Police-Community Problem Solving

Through its mediation process, CRS channels community tensions and anger into a constructive discussion

of other issues that often surface after a use of excessive force incident. Police may review community concerns regarding its “use of force” policy, workforce

diversification, minority officer recruitment, hiring and

Kansas City, Missouri - A shooting of a young AfricanAmerican man by a police officer led to a mass gathering of youth who taunted and hurled rocks, bottles

and other missiles at police arriving at the scene following the shooting. The adult residents were unable

to curtail the violent response. Tensions were still volatile upon the arrival of CRS mediators, who began

communication with the youth in a series of street

meetings. CRS arranged constructive discussions of

their issues with the police, city officials, and other community members. The tension levels were lowered,

and further violence and property destruction were

averted.

Fort Yates, North Dakota - CRS helped police and tribal

leaders of the Standing Rock Reservation address concerns over the death of a young Native American in

the custody of the Bureau of Indian Affairs (BIA) police. The victim’s family had complained about the

law enforcement practices, raising concerns that his

death may have occurred in retaliation to the family’s

initial complaints to the police about his treatment.

CRS secured BIA’s agreement to assess community

concerns and initiate an investigation. Law Enforcement officials advised the family and community

members about the investigation. This resulted in the

dismissal of an officer and the establishment of a

strong policy against the harassment of complainants.

Los Angeles, California - In times of heightened tensions and distrust of government agencies, CRS encouraged and advised local officials to work with religious and other community leaders to undertake

detailed contingency planning. Their impact may

have prevented violence during the second jury trial

of the police officers in the Rodney King case.
Community Relations Service, U.S. Department of Justice Police Use of Force ❒ 5

selection criteria, training programs on race relations

and diversity, promotion of minority officers, and creation of permanent mechanisms for improved police

and community dialogue.

While issues regarding the specific incident must be

addressed, attention should also be given to broader

underlying concerns which often are at the root of

community frustration and conflict. Departmental policies on the use of force and the use of deadly force,

including firearms policy and use of restraints may be

reviewed by a community coalition. A coalition of

leaders can be formed to address how to achieve

better police community relations. Community input

should be solicited during this review, including requests

for public comment and discussion. Communities

should know the various options that are available at

the Federal, State, and local levels to address concerns

over police use of force, use of deadly force, and allegations of excessive use of force.

Federal Laws

Federal Criminal Enforcement. This law prohibits one

or more persons from willfully acting under color of law

to deprive or conspire to deprive another person of

any right protected by the Constitution or laws of the

United States. (18 U.S.C. § 241, 242)

Federal Civil Enforcement

Police Misconduct Provision - This law prohibits State or

local law enforcement officers from engaging in a

pattern or practice of conduct that deprives persons

of rights protected by the Constitution or laws of the

United States. (42 U.S.C. § 14141).

Title VI of the Civil Rights Act of 1964 and the ‘OJP Program Statute’ - Together, these laws prohibit discrimination on the basis of race, color, national origin, sex,

and religion by State and local law enforcement agencies that receive financial assistance from the Department of Justice. (42 U.S.C. §2000d, et seq. And 42 U.S.C.

§3789d(c)).

CRS Mission

In accordance with Title X of the Civil Rights Act of

1964, 42 U.S.C. §2000g, CRS seeks to prevent or resolve

community conflicts and tensions arising from actions,

Sonoma County, California – Officers in Rohnert Park

responding to a 2 a.m. domestic disturbance call were

confronted with an Asian-American man wielding a

broom. After repeated requests by the officers for the

man to put down the broom, one of the officers responded with deadly force, killing the man when he

felt threatened. Later, when asked why, the officer

made a statement that Asians posed a higher threat

because most are martial arts experts. The response

from the media and the community over the officer’s

actions was immediate. CRS intervened to reduce

tensions. To more intensively address issues, CRS facilitated a community dialogue in Santa Rosa over use

of force policy and other issues between law enforcement agencies and the community. The dialogue,

“Building Bridges,” was the result of six months of joint

community and law enforcement preparation and

allowed residents and police agencies to identify

problems and solutions in small group discussions,

greatly alleviating pressure, helping to build relationships, and preventing further conflict between police

and citizens.

Portland, Oregon - Following the death of an AfricanAmerican man from a carotid-artery (choke) hold by

a police officer, CRS mediation provided an opportunity to discuss police restraint techniques which led

to changes in policies regarding the use of force, specifically stopping the usage of choke holds.

Long Beach, California - Following the shooting of an

emotionally disturbed Cambodian-American man,

CRS mediated sessions with the Cambodian community citizens group, local government and police.

These sessions resulted in the implementation of procedures, protocols, and training for appropriate police response to mentally unstable citizens, thus resolving many community concerns about police activities.
Community Relations Service, U.S. Department of Justice Police Use of Force ❒ 6

policies, and practices perceived to be discriminatory

on the basis of race, color, or national origin. CRS provides services, including conciliation, mediation, training and technical assistance, directly to communities

to help them resolve conflicts that tear at the fabric of

our increasingly diverse society.

CRS Strategic Goals in Use of Force

Situations:

• To establish bridges between minority groups and

law enforcement organizations in order to improve

relations and community safety, and to reduce the

potential for community conflict.

• To improve the preparedness of communities to

respond to civil unrest, including activities by hate

groups, through the provision of training, contingency planning, and technical assistance.

• To provide a high caliber of conflict resolution and

prevention services to those communities most vulnerable to significant race relations tensions, conflicts, and violence.

• To build enhanced dispute resolution capabilities

in local communities, including high schools, colleges and universities, so that local institutions will

be able to resolve their own conflicts without external assistance.

• To create opportunities and mechanisms for constructive civic discourse on issues of race and

ethnicity. CRS provides assistance to efforts to establish “places and spaces” for candid race relations discussions.

Services Provided to Communities

When police use of force incidents increase community racial tensions, CRS conducts a thorough assessment to determine appropriate assistance. CRS meets

with elected officials and community leaders, analyzing a variety of indicators, including the causes of the

tensions, the potential for violence or continued violence, determining the level of communication among

the parties and their interest in working together.

Mediation and Conciliation. Mediation and conciliation are two techniques used by CRS to help resolve

police-community tensions arising from police use of

force incidents. CRS conciliators provide an impartial

forum between representatives of community groups

and local government leaders to hold an orderly discussion of the issues. CRS establishes with the parties

mutually agreed-upon ground rules and guidelines for

a dialogue.

Technical Assistance. CRS assists local officials and

community leaders with developing and implementing policies, practices, and procedures to help residents, organizations, and officials ease tensions and

end conflicts.

Training in Response to Racial and Ethnic Conflicts. CRS

conducts training sessions and workshops on

cross-cultural and diversity issues, and police minority

community relations. CRS also trains police on ways to

work with minority communities in racially charged situations, and to increase cooperation in areas such as

identifying witnesses.

Event Contingency Planning. CRS provides technical

assistance in contingency planning to ensure that

marches, demonstrations, and similar events occur

without exacerbating racial and ethnic tensions, while

minimizing the prospect of any confrontations. CRS

trains volunteers to carry out services such as providing information sharing, rumor control, demonstration

marshals, and communication links with law enforcement agencies.
Community Relations Service, U.S. Department of Justice Police Use of Force ❒ 7

CRS National Office

Community Relations Service

600 E Street, NW, Suite 6000

Washington, DC 20530

202-305-2935; 202-305-3009 (Fax)

www.usdoj.gov/crs

Regional Offices

New England Regional Office (Region I)

(ME, VT, NH, MA, CT, RI)

Community Relations Service

408 Atlantic Avenue, Suite 222

Boston, MA 02110

617-424-5715; 617-424-5727 (Fax)

Northeast Regional Office (Region II)

(NY, NJ, VI, PR)

Community Relations Service

26 Federal Plaza, Suite 36-118

New York, NY 10278

212-264-0700; 212-264-2143 (Fax)

Mid-Atlantic Regional Office (Region III)

(DC, DE, MD, PA, VA, WV)

Community Relations Service

2nd and Chestnut Streets, Suite 208

Philadelphia, PA 19106

215-597-2344; 215-597-9148 (Fax)

Southeast Regional Office (Region IV)

(AL, FL, GA, KY, MS, NC, SC, TN)

Community Relations Service

75 Piedmont Avenue, NE, Suite 900

Atlanta, GA 30303

404-331-6883; 404-331-4471 (Fax)

Midwest Regional Office (Region V)

(IL, IN, MI, MN, OH, WI)

Community Relations Service

55 W. Monroe Street, Suite 420

Chicago, IL 60603

312-353-4391; 312-353-4390 (Fax)

Southwest Regional Office (Region VI)

(AR, LA, NM, OK, TX)

Community Relations Service

1420 W. Mockingbird Lane, Suite 250

Dallas, TX 75247

214-655-8175; 214-655-8184 (Fax)

CRS Offices

Central Regional Office (Region VII)

(IA, KS, MO, NE)

Community Relations Service

1100 Main Street, Suite 1320

Kansas City, MO 64105-2112

816-426-7434; 816-426-7441 (Fax)

Rocky Mountain Regional Office (Region VIII)

(CO, MT, ND, SD, UT, WY)

Community Relations Service

1244 Speer Boulevard, Suite 650

Denver, CO 80204-3584

303-844-2973; 303-844-2907 (Fax)

Western Regional Office (Region IX)

(AZ, CA, GU, HI, NV)

Community Relations Service

888 S. Figueroa Street, Suite 1880

Los Angeles, CA 90017

213-894-2941; 213-894-2880 (Fax)

Northwest Regional Office (Region X)

(AK, ID, OR, WA)

Community Relations Service

915 Second Avenue, Suite 1808

Seattle, WA 98174

206-220-6700; 206-220-6706 (Fax)

Field Offices

Community Relations Service

51 SW First Avenue, Suite 624

Miami, FL 33130

305-536-5206; 305-536-6778 (Fax)

Community Relations Service

211 W. Fort Street, Suite 1404

Detroit, MI 48226

313-226-4010; 313-226-2568 (Fax)

Community Relations Service

515 Rusk Avenue, Suite 12605

Houston, TX 77002

713-718-4861; 713-718-4862 (Fax)

Community Relations Service

120 Howard Street, Suite 790

San Francisco, CA 94105

415-744-6565; 415-744-6590 (Fax)
Community Relations Service, U.S. Department of Justice Police Use of Force ❒ 8

CRS Customer

Service Standards

Our goal is to provide sensitive and effective conflict prevention and resolution

services. CRS will meet the following standards:

• We will clearly explain the process

that CRS uses to address racial and

ethnic conflicts and our role in that

process.

• We will provide opportunities for all

parties involved to contribute to

and work toward a solution to the

racial or ethnic conflict.

• If you are a participant in a CRS

training session or conference, you

will receive timely and useful information and materials that will assist

you in preventing or minimizing

racial and ethnic tensions.

• We will be prepared to respond to

major racial or ethnic crisis situations

within 24 hours from the time when

your community notifies CRS or CRS

becomes aware of the crisis.

• In non-crisis situations, we will contact you within three days of when

your community notifies CRS or

when CRS becomes aware of the

situation to discuss your request for

CRS services.

(August 2001)

CRS Publications

These publications are available at or from

a CRS Office:

• About the Community Relations

Service

• Police Use of Deadly Force: A Conciliation Handbook for Citizens and

the Police

• Principles of Good Policing: Avoiding Violence Between Police and

Citizens

• Avoiding Racial Conflict: A Guide

for Municipalities

• Police and Urban Youth Relations:

An Antidote to Racial Violence

• Planning for Safe Marches and

Demonstrations

• Responding to Incidents Involving

Allegations of Excessive Use of

Force: A Checklist to Guide Police

Executives

• So...You’re a Demonstration Marshal

• Managing Major Public Events: A

Planning Guide for Municipal Officials, Law Enforcement, Community

Leaders, Organizers, and Promoters

(Revised September 2003)