U.S. Department of Justice

Office of Justice Programs

Office for Victims of Crime

to Victims of

Crime Who

Have a

Disability

First

Response

Office for Victims of Crime

October

2002
U.S. Department of Justice

Office of Justice Programs

810 Seventh Street NW.

Washington, DC 20531

John Ashcroft

Attorney General

Deborah J. Daniels

Assistant Attorney General

John W. Gillis

Director, Office for Victims of Crime

Office of Justice Programs

World Wide Web Home Page

www.ojp.usdoj.gov

Office for Victims of Crime 

World Wide Web Home Page

www.ojp.usdoj.gov/ovc

For grant and funding information, contact

U.S. Department of Justice Response Center

1–800–421–6770

OVC Resource Center

1–800–627–6872

(TTY 1–877–712–9279)

www.ncjrs.org

OVC Training and Technical Assistance Center

1–866–682–8822

www.ojp.usdoj.gov/ovc/assist/welcome.html

The Office for Victims of Crime is a component of the Office 

of Justice Programs, which also includes the Bureau of Justice

Assistance, the Bureau of Justice Statistics, the National Institute

of Justice, and the Office of Juvenile Justice and Delinquency

Prevention.

NCJ 195500

This handbook was prepared by National Sheriffs’ Association under

grant number 97–VF–GX–0002, awarded by the Office for Victims of

Crime, Office of Justice Programs, U.S. Department of Justice. The

opinions, findings, and conclusions expressed in this document are

those of the author and do not necessarily represent the official position or policies of the U.S. Department of Justice.
First Response to

Victims of Crime Who

Have a Disability

A Handbook for Law Enforcement Officers

on How To Approach and Help Crime Victims 

Who Have

Alzheimer’s Disease

Mental Illness

Mental Retardation

Or Who Are

Blind or Visually Impaired

Deaf or Hard of Hearing

October 2002 NCJ 195500
iii

Message From the Director

In 2000, the Office for Victims of Crime (OVC) published

First Response to Victims of Crime, a handbook for law enforcement officers to help them better understand and meet the

needs of crime victims. It offered basic guidelines to observe

when approaching and interacting with five general categories

of crime victims: older victims, sexual assault victims, child

victims, domestic violence victims, and survivors of homicide

victims. In 2001, the handbook was updated with an additional

section on responding to victims of alcohol-related driving

crashes. First Response to Victims of Crime 2001 provides a

concise, instructional reference tool for law enforcement and

has been the most requested OVC publication.

With this new handbook, First Response to Victims of Crime

Who Have a Disability, OVC seeks to increase the capacity of

law enforcement to respond to particular populations of crime

victims in a sensitive and effective manner, recognizing the special needs of certain individuals. The handbook offers guidance

and tips on approaching and interacting with victims who have

Alzheimer’s disease, mental illness, or mental retardation, or

who are blind, visually impaired, deaf, or hard of hearing. It is

estimated that 17 percent of the U.S. population has one of

these disabilities. Therefore, it is likely that law enforcement

officers will encounter a victim with a disability. Because officers

and dispatchers often are the first to respond to crime victims,

it is critical that they understand how to approach them. There

are few resources for law enforcement professionals in this area,

and what is available is typically offender rather than victim

focused and found in training curricula.

This handbook is not intended to be a training manual and

does not offer a response to every situation, but it does highlight salient issues for victims with disabilities. The handbook

provides an introductory section with general tips on responding to victims with a disability and a section for each disability

that offers professionals guidance on how to respond to victims

with that particular disability. Also included is a section on

the Americans with Disabilities Act of 1990 and Section 504

of the Rehabilitation Act of 1973, two federal laws that prohibit

discrimination against individuals with disabilities. Finally, the

handbook highlights service providers representing the interests
First Response to Victims of Crime Who Have a Disability

iv

of individuals with the various disabilities covered and lists

other national victim resources. These resources are intended

to help law enforcement locate the services victims need. Like

First Response to Victims of Crime, this handbook may be

useful in retraining officers in the inservice setting, at roll

calls, and in recertification programs.

This handbook is a reminder that every victim deserves to

be treated compassionately, fairly, and respectfully. Law enforcement’s sensitive and quality response to all victims strengthens

the criminal justice system.

John W. Gillis

Director

Office for Victims of Crime
v

Acknowledgments

The Office for Victims of Crime (OVC) wishes to acknowledge the National Sheriffs’ Association (NSA) for developing this

handbook and Timothy O. Woods, J.D., M.A., NSA’s Director of

Research and Development, for writing it.

Terri J. Hicks, Triad Program Coordinator at NSA, is also

recognized for her inspiration in suggesting that a “how to”

handbook was needed for law enforcement on responding to

victims of crime who have a disability.

Finally, OVC wishes to especially thank the following individuals who generously contributed their expertise, and often

passionately shared their personal experiences, in support of

this project: Nora J. Baladerian, Ph.D., Disability, Abuse &

Personal Rights Project; Elizabeth Cantrell, Cantrell Associates;

Marc P. Charmatz, J.D., National Association of the Deaf Law

Center; M. Doreen Croser, American Association on Mental

Retardation; Leigh Ann Davis, The Arc; Sharon D’Eusanio,

Division of Victim Services and Criminal Justice Programs,

Office of the Florida Attorney General; Brian Hance, Alzheimer’s

Association; Ron Honberg, J.D., National Alliance for the

Mentally Ill; Jeri Houchins, Back to Life; Angela M. Kaufman,

Department on Disability, City of Los Angeles; Gerald Landsberg,

D.S.W., Ehrenkranz School of Social Work, New York University;

Gail London, Federal Law Enforcement Training Center;

Christine A. Mayman, Shenandoah Women’s Center; Peggie

Reyna, Los Angeles Commission on Assaults Against Women;

Sgt. Doreen Russo, Sexual Battery/Child Abuse Unit, City of

Miami Police Department; Marilyn J. Smith, Abused Deaf

Women’s Advocacy Services; Cheryl G. Tyiska, National

Organization for Victim Assistance; and Mary T. Zdanowicz,

J.D., Treatment Advocacy Center.
vii

Contents

I. Basic Guidelines on First Response to Victims 

of Crime Who Have a Disability..............................1

II. Americans with Disabilities Act of 1990 

and Section 504 of the Rehabilitation 

Act of 1973................................................................5

III. Crime Victims Who Have Alzheimer’s Disease........6

IV. Crime Victims Who Have Mental Illness..................9

V. Crime Victims Who Have Mental Retardation........13

VI. Crime Victims Who Are Blind or 

Visually Impaired....................................................16

VII. Crime Victims Who Are Deaf or Hard 

of Hearing................................................................18

VIII. Directory of Service Providers................................22
1

I. Basic Guidelines on Approaching Victims of Crime

I. Basic Guidelines on First Response to

Victims of Crime Who Have a Disability 

Background

Anyone can be victimized by crime. But people who have a

disability can be more vulnerable to victimization than others 

in society. People with a mental impairment can be less able to

recognize and avoid danger, and people with a physical impairment can be less able to protect themselves or escape harm.

Furthermore, victims of crime who have a disability can be less

able to contact law enforcement and, without disability accommodations, help in the investigation of their victimization.

One out of five people in the United States has a mental or

physical impairment, and the disability is severe for half of this

population. These disabilities come in many forms but all affect

either a person’s mental functioning, such as the ability to reason and exercise good judgment, or a person’s physical abilities,

such as the ability to see and hear.

Numerous research studies indicate that the risk of criminal

victimization for people with a disability is much higher than 

for people without disabilities. In addition, people who have a

disability are often victimized repeatedly by the same perpetrators. Yet, most of the issues that confront victims who have a

disability are issues that affect all crime victims.

The way victims cope depends largely on their experience

following the crime. As a law enforcement officer, you are usually the first official to interact with victims. For this reason, you

are in a unique position to help victims cope with the trauma 

of the crime and restore a sense of security and control over

their lives.

The circumstances of a crime dictate when and how

responding officers are able to first address victims and their

needs. You may have to juggle many other tasks, such as securing the crime scene, determining and calling for emergency

medical services, advising other public safety personnel on their

arrival, collecting evidence, and interviewing witnesses at the

scene. Apprehending offenders is the law enforcement officer’s

primary duty and, as a result, first responders may not be able

to respond to victims as quickly as they would like.
As soon as the responding officer’s most urgent tasks have

been completed, however, attention can be directed to crime

victims and their needs. At that point, how you approach victims, explain your competing law enforcement responsibilities,

and work with victims is crucial to their recovery. Always

remember that you are there for each victim. Crime victims

are not just witnesses for you.

By responding to victims appropriately and compassionately,

the law enforcement officer is also more likely to gain their trust

and cooperation. As a consequence, victims are more willing to

provide detailed information about the crime to the officer and

later to investigators and prosecutors, which, in turn, leads to

the conviction of more criminals.

Finally, although most issues that crime victims who have 

a disability confront are concerns that affect crime victims in

general, there are still important differences in how to approach

and help victims with a disability. The information presented in

this handbook illustrates some of these differences and how to

better serve all crime victims.

General Tips on Responding to Crime Victims 

Who Have a Disability

A lack of personal familiarity with individuals who have a

disability may cause you to feel professionally awkward and

uncertain in your response to victims of crime with disabilities.

On the other hand, a person’s impairment may not be obvious,

so watch victims carefully for signs of any disability. You should

also not be hesitant to ask victims if they have any individualized needs because of a mental or physical impairment. In

short, as the first response officer, you can promote effective

communication, reduce your anxieties, and best serve victims

by observing these guidelines:

● Rethink your attitude about people who have a disability

(the negative attitudes of others are sometimes their greatest

impairment).

● Consider that a person with a substantial disability may be

healthier than you.

● Be careful not to label or define people by their impairment.

For example, referring to the victim as “a disabled woman”

First Response to Victims of Crime Who Have a Disability

2
rather than saying the victim is “a woman with a disability”

can convey the image of a person who is primarily disabled

and secondarily a woman. Similarly, it is better to say “the

victim has schizophrenia” or “the victim has a mental illness” rather than “the victim is a schizophrenic” and “the

victim is a male with blindness” is better than “the victim is

a blind man.” In other words, the person has an impairing

condition, not the person is that condition.

● Ask victims how they wish to be characterized and how you

can communicate with them most effectively. Your respect

and sensitivity will ensure that the words you use and

accommodations you make are appropriate, not detrimental.

The presence of someone familiar to victims or a person

knowledgeable about their impairment may also be extremely important for victims and helpful during your interview.

But recognize that family members, service providers, and

others could be the offenders or could protect the offenders.

The presence of these people, therefore, may inhibit victims

from fully describing the crime to you for fear of retribution.

● Do not act on your curiosity about the victim’s disability.

Restrict your questions to those necessary to accommodate

the victim’s needs.

● Avoid expressing pity with phrases such as “suffering from”

Alzheimer’s disease and “a victim of” mental illness.

● Speak directly to victims, even when they are accompanied

by another person. People who have a disability are sometimes assumed to be incapable of making decisions for

themselves.

● Listen to your tone of voice and monitor your behavior to

avoid talking down to victims, coming across in a condescending manner, or treating victims as children.

● Do not express admiration for the abilities or accomplishments of victims in light of their disability.

● Be mindful of the underlying painful message communicated to victims by comments such as “I can’t believe they did

this to someone like you”; “She’s disabled and he raped her

anyway”; or “To steal from a blind man. That’s got to be the

lowest.” The message is that one considers people who have

a disability as “less than” complete human beings.

I. Basic Guidelines on Approaching Victims of Crime

3
● Document victims’ disability in your incident report and

their individualized (1) communication, (2) transportation,

(3) medication, and (4) other accommodation needs.

● Ensure that victims are in a safe environment before leaving

the scene. Again, recognize that family members, service

providers, and others could be the offenders and that an

alternate caregiver or shelter may be needed for victims.

Contact a victim advocate whenever possible for victim

services and followup.

● Never assume that people with disabilities somehow suffer

less emotional trauma and psychological injury than other

crime victims.

● Remember that federal law (see section II) requires—with

few exceptions—that law enforcement make reasonable

modifications to policies, practices, and procedures where

needed to accommodate crime victims who have a disability, unless doing so would fundamentally alter the service,

program, or activity the agency provides.

First Response to Victims of Crime Who Have a Disability

4
II. Americans with Disabilities Act of 1990 

5

II. Americans with Disabilities Act of

1990 and Section 504 of the

Rehabilitation Act of 1973

Two federal laws—the Americans with Disabilities Act of

1990 (ADA) and Section 504 of the Rehabilitation Act of

1973—prohibit discrimination on the basis of a disability. Title

II of ADA applies to state and local government entities, while

Section 504 applies to recipients of federal financial assistance,

including recipients of grants from the U.S. Department of

Justice (DOJ).

An individual with a disability is defined by ADA and

Section 504 as a person who (1) has a physical or mental

impairment that substantially limits one or more major life

activities; (2) has a record of such an impairment; or (3) is

regarded as having such an impairment.

Both Title II of ADA and Section 504 require—with few

exceptions—that first responders provide victims of crime who

have a disability with an equal opportunity to benefit from and

participate in all programs, services, and activities of the law

enforcement agency. In addition, first responders must provide

for equally effective communication to victims with a disability.

Law enforcement, therefore, is required to make reasonable

modifications to policies, practices, and procedures where

needed to accommodate crime victims who have a disability,

unless doing so would fundamentally alter the service, program,

or activity the agency provides.

For more information about your responsibilities under ADA

and Section 504, call DOJ’s ADA Information Line at (800)

514–0301 or DOJ’s Office of Justice Programs at (202)

307–0690.
III. Crime Victims Who Have 

Alzheimer’s Disease

Background

Alzheimer’s disease breaks down the connections between

nerve cells in the brain. Outward signs of the disease may not

be apparent in a person until the disease reaches its advanced

stages. Initially, Alzheimer’s causes one to forget recent events

or familiar tasks. Eventually, people with the disease are unable

to care for themselves.

First responders may observe the following common symptoms in people with Alzheimer’s disease:

● Use of nonsensical words in speaking.

● Disoriented sense of time and place.

● Wandering or becoming lost and not knowing where 

one lives.

● Blank facial expression.

● Poor judgment. For example, wearing winter clothes in

summer or a nightgown to go shopping.

● Rapid mood swings for no apparent reason.

● Walking manner characterized by slow, sliding movements

without lifting the feet.

Although the disease can occur during a person’s 30s, 40s,

and 50s, most people with Alzheimer’s disease are older than

65. Ten percent of people over age 65 and nearly 50 percent of

those over 85 have the disease. The vast majority of these people live in the community, not a caregiving facility. Thus, as the

elderly are the fastest growing U.S. age group, the number of

people with Alzheimer’s disease is increasing, as is the likelihood that you will encounter victims who have this disability.

Tips on Responding to Crime Victims 

Who Have Alzheimer’s Disease

Approach victims from the front and establish and maintain

eye contact (when you know in advance that the victim has

Alzheimer’s disease). Introduce yourself as a law enforcement

First Response to Victims of Crime Who Have a Disability

6
III. Crime Victims Who Have Alzheimer’s Disease

7

officer and explain that you have come to help. Due to their

impaired short-term memory, victims may repeatedly ask who

you are. Thus, you may need to reintroduce yourself several

times.

● Ask for identification if you suspect that victims have

Alzheimer’s disease. In addition, observe for a Safe Return

bracelet, necklace, lapel pin, key chain, or label inside their

clothing collar. Safe Return identification provides the first

name of a person bearing this ID, indicates that he or she

has a memory impairment, and gives the 24-hour toll-free

number for the Alzheimer’s Association’s Safe Return

Program. The program includes a nationwide participant

registry that contains the full name of the registrant, a

photograph, identifying characteristics, medical information,

and emergency contact information. When you call the program’s crisis number at (800) 572–1122, a Safe Return clinician will contact the registrant’s caregivers.

● Treat victims with dignity. The deterioration of their mental

abilities does not mean victims are without feelings.

● Remove victims from crowds and other noisy environments

as this can cause restlessness, pacing, agitation, and panic in

people with Alzheimer’s. Also, turn off your car’s flashing

lights and lower the volume on your radio.

● Establish one-on-one conversation. Talk in a low-pitched,

reassuring tone, looking into the victim’s eyes. Alzheimer’s

shortens attention span and increases suspicion. Your calm

support can make victims less agitated and panicked. Speak

slowly and clearly, using short, simple sentences with familiar words. Repeat yourself. Accompany your words with gestures when this can aid in communication, but avoid sudden

movements.

● Include victims in all conversations, out of respect and so

you will not arouse their suspicion.

● Explain your actions before proceeding. If victims are agitated or panicked, gently pat them or hold their hand, but

avoid physical contact that could seem restraining.

● Expect difficulties making yourself understood. Do not

assume victims understand you or are capable of answering

your questions and complying with your instructions.
First Response to Victims of Crime Who Have a Disability

8

● Give simple, step-by-step instructions and, whenever possible, a single instruction. For example, “Please sit here. I’ll

take care of everything.” Avoid multiple, complex, or wordy

instructions, such as: “Please sit here, don’t get up or go anywhere, and wait for me to come back.” Also, substitute nonverbal communication by sitting down if you want victims to

sit down.

● Ask one question at a time. “Yes” and “no” questions are

better than questions that require victims to think or recall

a sequence of events. Be prepared for answers that are confusing and keep changing. If victims’ words are unintelligible,

ask them to point, gesture, or otherwise physically communicate their answer.

● Never argue with victims or challenge their reasoning.

● Do not leave victims alone; they may wander away.

● When victims’ caregivers are located, encourage them to

contact the Safe Return Program’s nonemergency number

at (888) 572–8566 to register victims not already listed in

the program’s registry.

● Find emergency shelter for victims with the help of a local

Alzheimer’s Association chapter if no other caregivers can

be found.
IV. Crime Victims Who Have Mental Illness

9

IV. Crime Victims Who Have 

Mental Illness

Background

Mental illness encompasses a number of distinct brain disorders—such as manic-depressive illness, schizophrenia, major

depression, and severe anxiety—that disrupt a person’s mood

balance, thought processes, memory, sensory input, feelings,

and ability to reason and relate to others. More than 7 million

adults and 5 million children in the United States have severe

mental illness which diminishes their capacity to meet the

ordinary demands of life.

Mental illness should not be confused with mental retardation. People with mental illness are usually of normal intelligence but may have difficulty functioning at normal levels due

to their illness.

Symptoms of mental illness vary from individual to individual depending on the type and severity of the disorder. Many

symptoms are not readily observable from outward appearances

but are noticeable in conversation. Although the first responder

cannot be expected to recognize specific types of mental illness,

the following symptoms are indicative that a victim may have

mental illness:

● Accelerated speaking or hyperactivity.

● Delusions and paranoia. For example, false beliefs that one

is a famous person or that others are trying to harm one.

● Hallucinations, such as hearing voices or seeing, feeling, or

smelling imaginary things.

● Depression.

● Inappropriate emotional response. For example, silliness or

laughter at a serious moment.

● Unintelligible conversation.

● Loss of memory. Not ordinary forgetfulness, but rather an

inability to remember the day, year, or where one is.
First Response to Victims of Crime Who Have a Disability

10

● Catatonia, which is characterized by a marked lack of

movement, activity, or expression.

● Unfounded anxiety, panic, or fright.

● Confusion.

Anyone who is a crime victim may be traumatized and

experience one’s victimization as a crisis. For people with

mental illness, this crisis may be experienced more profoundly. The following guidelines can help you respond to victims

who have mental illness.

Tips on Responding to Crime Victims 

Who Have Mental Illness

● Approach victims in a calm, nonthreatening, and reassuring

manner. Victims may be overwhelmed by delusions, paranoia, or hallucinations and may feel threatened by you or

afraid of you. Introduce yourself personably by name first,

then your rank and agency. Make victims feel they are in

control of the situation.

● Determine whether victims have a family member, guardian,

or mental health service provider who helps them with daily

living. Contact that person immediately.

● Contact the local mental health crisis center immediately if

victims are extremely agitated, distracted, uncommunicative,

or displaying inappropriate emotional responses. Victims

may be experiencing a psychiatric crisis.

● Ask victims if they are taking any medications and, if so,

the types prescribed. Make sure victims have access to

water, food, and toilet facilities because side effects of the

medications may include thirst, urinary frequency, nausea,

constipation, and diarrhea.

● Conduct your interview in a setting free of people or distractions upsetting to victims. If possible, only one officer should

interview victims.

● Keep your interview simple and brief. Be friendly and

patient and offer encouragement when speaking to victims.

Understand that rational discussion may not be possible on

some or all topics.
IV. Crime Victims Who Have Mental Illness

11

● Be aware that victims experiencing delusions, paranoia, or

hallucinations may still be able to accurately provide information outside their false system of thoughts, including

details related to their victimization and informed consent

to medical treatment and forensic exams.

● Avoid the following conduct in your actions and behavior

with victims:

❑ Circling, surrounding, closing in on, or standing too

close.

❑ Sudden movements or rapid instructions and questioning.

❑ Whispering, joking, or laughing in their presence.

❑ Direct continuous eye contact, forced conversation, or

signs of impatience.

❑ Any touching.

❑ Challenges to or agreement with their delusions, paranoia, or hallucinations.

❑ Inappropriate language, such as “crazy,” “psycho,” and

“nuts.”

● Back off and allow victims time to calm down before intervening if they are acting excitedly or dangerously and there

is no immediate threat to anyone’s safety. Outbursts are

usually of short duration.

● Break the speech pattern of victims who talk nonstop by

interrupting them with simple questions, such as their birth

date or full name, to bring compulsive talking under control.

● Do not assume that victims who are unresponsive to your

statements cannot hear you. Do not act as if they are not

present. Be sensitive to all types of response, including a

victim’s body language.

● Understand that hallucinations are frighteningly real to victims. Never try to convince victims that their hallucinations

do not exist. Rather, reassure victims that the hallucinations

will not harm them and may disappear as their stress

lessens.
First Response to Victims of Crime Who Have a Disability

12

● Acknowledge paranoia and delusions by empathizing with

victims’ feelings but neither agree nor agitate victims by disagreeing with their statements. For example, if victims state

that someone wants to harm them, reply with: “I can see

that you’re afraid. What can I do to make you feel safer?”

Recognize also that victims who state that others are trying

to harm them may be the victims of stalking or other

crimes.

● Continually assess victims’ emotional state for any indications that they may be a danger to themselves or others.

● Be honest with victims. Getting caught by victims in your

well-intentioned deception will only increase their fear and

suspicion of you.

● Provide for victims’ care by a family member, guardian, or

mental health service provider before leaving them.
V. Crime Victims Who Have Mental Retardation

13

V. Crime Victims Who Have 

Mental Retardation

Background

Mental retardation is an impairment affecting the brain and

its ability to process information. People with mental retardation

have difficulty learning and are below average in intelligence.

They have problems with memory and judgment and in their

abilities to reason, focus, and understand.

Approximately 3 out of 100 people have mental retardation.

But people with mental retardation appear to represent much

more than 3 percent of crime victims because they also appear

to be at higher risk for victimization than people without 

disabilities.

Most people with mental retardation are only mildly affected

and look no different from anyone else, making mental retardation difficult for first responders to recognize.

Furthermore, people with mental retardation may try to

hide their impairment or pretend greater capabilities than they

actually possess. There are, however, questions you can ask and

traits you can watch for when attempting to determine if a

crime victim has mental retardation: 

● Ask victims where they live, work, or go to school, and if

they have someone who helps them to determine if they live

with their parents or in a group home, are employed in a

vocational rehabilitation setting, attend special education

classes, or have a social worker.

● Ask victims for directions to their home, what time they

have, or to read or write something for you. Observe victims

for any difficulty they have understanding you; listen to

whether they speak with an impairment or have a limited

vocabulary; and watch for any other difficulties exhibited 

by victims in responding to these simple requests.

There is often no way for the first responder to know that a

crime victim has mental retardation. People with the disability

can vary widely in their capabilities and skills. If you suspect

this impairment, proceed as though the victim has mental
First Response to Victims of Crime Who Have a Disability

14

retardation. In doing this, you can ensure effective communication and know that you have done your best to respond appropriately to the victim’s needs.

Tips on Responding to Crime Victims 

Who Have Mental Retardation

● Show the same respect to crime victims with mental retardation that you show all victims.

● Introduce yourself first as a law enforcement officer, followed

by your agency and name. People with mental retardation

have been taught that law enforcement officers are their

friends and are people they can trust and who will keep

them safe.

● Avoid using the words “retardation” or “retarded” in front of

victims. If you need to refer to a victim’s impairment and the

victim is nearby, say “person with a disability.”

● Do not assume that victims are incapable of understanding

or communicating with you. Most people who have mental

retardation live independently or semi-independently in the

community, so a fairly normal conversation is possible.

● Create a safe atmosphere, limit distractions, and establish a

trusting rapport with victims before interviewing them.

● Be mindful of the issue of a victim’s competency to give or

withhold consent to medical treatment and forensic exams,

notification of next of kin, and other services, but do not

assume victims are incompetent.

● Explain written information to victims and offer to help

them fill out paperwork.

● Ask victims if there is anyone they would like you to call to

be with them during your interview. But remember, family

members, service providers, and others can have a vested

interest in the interview. They could be the offenders or try

to protect the offenders.

● Allow adequate time for your interview and take a break

every 15 minutes.

● Treat adult victims as adults, not children.
V. Crime Victims Who Have Mental Retardation

15

● Speak directly and slowly to victims, keeping your sentences

short and words simple. Listen to how victims talk, and

match your speech to their vocabulary, tempo, and sentence

structure.

● Separate complex information into smaller parts and use

gestures and other visual props to get your meaning across.

Do not overload victims with too much information.

● Recognize that victims may be eager to please or be easily

influenced by you. They may say what they think you want

to hear, so be careful not to ask leading questions.

● Use open-ended questions or statements that cannot be

answered with a “yes” or “no,” such as “Tell me what happened.” Let victims “lead the interview” as they disclose

information.

● Help victims understand your questions by giving them

points of reference. For example, ask “What color was the

man’s hair?” rather than “What did the man look like?” and

“Did the fight start before or after lunch?” instead of “When

did the fight start?”

● Wait patiently at least 30 seconds for victims to respond to

an instruction or question. If victims do not respond or reply

inappropriately, calmly repeat yourself, using different

words. Also, have victims state in their words what they

understood you to say.

● Repeat the last phrase of victims’ responses in question form

to help them stay focused during your interview and to transition victims through a sequence of events. For example,

ask “He hit you?”, “You fell down?”, and “You tried to run?”

● Keep questions that require victims to do much reasoning or

that can confuse victims to a minimum. Examples of types

of questions to avoid include the following: “Why do you

think she did this to you?”, “Do you have any idea what

was going on?”, or “What made you do that?”

● Realize that you are not alone when you respond to crime

victims with mental retardation. Look in the telephone book

under “social service organizations,” contact your local

United Way or local chapter of The Arc, or call The Arc of

the United States at (800) 433–5255 for help on how best to

serve victims who have mental retardation.
First Response to Victims of Crime Who Have a Disability

16

VI. Crime Victims Who Are Blind or

Visually Impaired

Background

The ability to see exists along a wide continuum from sighted to partially sighted to blind. Although it is rare for a person

to be completely blind, that is, with no vision, “legal blindness”

and visual impairments affect an estimated 15 million people in

the United States. Legally blind defines the condition in which

a person is unable to see at 20 feet what someone with normal

vision can see at 200 feet. Partially sighted people, although

often able to get around without much difficulty, need adaptive

methods to read and write because of their vision impairment. 

Blindness—whether complete or legal—and vision impairments become more common with advancing age. Seventy percent of people with blindness or severe visual impairment are

age 65 or older. Thus, it is anticipated that the number of people with this disability will increase substantially over the next

20 or 30 years as baby boomers enter their elderly years.

Whatever a crime victim’s age, however, first responders can

effectively meet the needs of victims who are blind or visually

impaired by following these guidelines.

Tips on Responding to Crime Victims 

Who Are Blind or Visually Impaired

● Introduce yourself immediately as a law enforcement officer

when you approach victims and have others who are present

introduce themselves, including children. These introductions let the victim know who is present and where they are

situated, and also help the victim recognize voices during

subsequent interviews. In addition, mention if there is a dog,

cat, or other pet present to protect victims from tripping

over the animals or being startled by them.

● Tell victims your name, badge number, and the telephone

number of your dispatcher when responding to victims who

are alone, and support them in verifying your identity.

● Do not speak loudly. Most people who are blind or visually

impaired hear well.
VI. Crime Victims Who Are Blind or Visually Impaired

17

● Identify the person(s) to whom you are speaking when conversing in a group because it may not be apparent to victims.

● Let victims know when you or someone with you steps away

during a conversation.

● Avoid lapses of conversation in your interview without

informing victims why you are silent; for example, tell victims that you are writing. Also, express attentiveness, concern, and compassion through your voice and choice of

words because victims cannot see your facial expressions 

or body language to know if you are listening to them and

interested.

● Offer to fill out forms and read aloud written information for

victims. Explain what printed materials you are providing

and make those materials available—as is legally required,

with few exceptions, by ADA and Section 504—in alternative format, including large print, audiotape, computer

diskette, and Braille, on request.

● Never pet guide dogs without permission. There is a special

relationship between people who are blind and their dogs;

the dogs are working animals that must not be distracted.

● Offer your arm, instead of holding the arm of victims, if they

want you to guide them in moving around. Let victims take

your arm from behind, just above the elbow. In this position,

they can follow the motion of your body. Walk in a relaxed

manner and expect victims to keep a half-step behind you

so they can anticipate curbs and steps.

● Orient victims to their surroundings and give cues as to

what lies ahead when guiding them. Close partially opened

doors to cabinets, rooms, and cars that obstruct their path.

Warn victims of hazardous objects around them. And be

sure to make your warnings and directions specific, such as

“straight in front of you,” “two steps going up,” and “directly

to your left” rather than vague references like “at the front

of the room” or “beside you.”
First Response to Victims of Crime Who Have a Disability

18

VII. Crime Victims Who Are Deaf or 

Hard of Hearing

Background

The term “deaf” is used in reference to people who are

unable to hear or understand oral communication with or without the aid of amplification devices. “Hard of hearing” refers to

people with a hearing loss severe enough to necessitate their

use of amplification devices to hear oral communication.

Almost 9 percent of the U.S. population is deaf or hard of

hearing. Among the elderly, nearly 1 in 4 people between 65

and 74 years old and 1 in 3 people over age 75 have a hearing

impairment.

Whether deaf or hard of hearing, crime victims with this disability are capable of cooperating fully with responding officers.

To effectively meet victims’ needs, however, first responders

should determine and honor as early as possible the method by

which victims wish to communicate.

Tips on Responding to Crime Victims 

Who Are Deaf or Hard of Hearing

● Signal your presence to victims by waving your hand or

gently—so as not to startle—touching victims on the arm 

or shoulder if victims do not notice you. 

● Determine how victims desire to communicate by initially

communicating through writing in situations where victims

are unable to hear you, they do not speech- or lip-read, and

a sign language interpreter is not present.

● Realize that victims may not be literate in written English

but may know American Sign Language (ASL).

● Never use a child to communicate with adult victims.

● Be careful not to assume that because victims are wearing

hearing aids they can hear or understand you. The degree

and type of a person’s hearing loss may render hearing aids

of limited assistance with the tones of speech. 
VII. Crime Victims Who Are Deaf or Hard of Hearing

19

● Remember in all your interactions with victims that deaf

and hard of hearing people are visually oriented.

● Avoid shouting or speaking very slowly to make yourself

heard and understood. This distorts your speech, lip 

movements, and facial expressions, which can make you

seem upset.

● Never speak directly into a victim’s ear.

● Bear in mind that not all people who are deaf or hard of

hearing can speech- or lip-read and that only about 20 percent of words are readable from the lips; the rest is guessing.

● Use gestures and pantomime to better communicate. For

example, you can motion toward a chair to offer victims a

seat; touch your clothing, or hair, when interviewing victims

for a description of the offender; and mimic drinking from a

glass to ask victims if they are thirsty.

● Do not assume that victims are unable to speak or use their

voice. Never use the words “deaf mute” or “deaf and dumb.”

Deaf people have the ability to use their voice but may prefer not to speak because of the quality of their speech.

● Observe victims’ facial expressions and other physical gestures closely as deaf and hard of hearing people communicate

a lot of information visually through their body language.

● Include victims in all conversations and describe any commotion. If you look away from victims to overhear another

conversation, if you are distracted because of a noise or disturbance, or if you turn from victims to converse with someone else, explain to victims exactly what you are doing or

what is happening.

● When interviewing victims who are hard of hearing—or victims who are deaf and desire to communicate by speech- or

lip-reading—select a location free of distractions, interference,

and, especially for those victims who are hard of hearing,

any background noise, and

❑ Face victims so your eyes and mouth are clearly visible.

Be careful not to block your mouth with your hands or

speak while looking away from victims or looking down

at your notes.
First Response to Victims of Crime Who Have a Disability

20

❑ Stand or sit at a distance between 3 and 6 feet from victims in a well-lit and glare- and shadow-free area. Avoid

unnecessary gesturing and body movement because it is

difficult for victims to speech- or lip-read if you are not

physically still.

❑ Begin speaking after you have the victim’s attention and

established eye contact.

❑ Make your questions and instructions short and simple.

❑ Speak clearly, distinctly, and slightly slower than usual

but not unnaturally slow, and do not exaggerate your

pronunciation of words.

❑ If necessary, talk slightly louder than usual but never

shout. Extremely loud tones are not transmitted as well

as normal tones by hearing aids and shouting distorts 

lip movements.

❑ Be prepared to repeat yourself. Use different words to

restate your questions and instructions. The victim may

have only missed a word or two initially and repetition

will clarify what was missed.

❑ Use open-ended questions and statements that require

victims to answer with more than a “yes” or “no” to prevent misunderstandings. For example, say “Describe the

offender for me,” rather than asking, “Is the offender

someone you know?”

● Honor victims’ request for a sign language interpreter as is

legally required—with few exceptions—by ADA and Section

504. The national Registry of Interpreters for the Deaf, at

(703) 838–0030, has affiliate chapters in all 50 states that

can help you locate an interpreter.

● When communicating through an interpreter, remember the

interpreter is present solely to transmit information back

and forth between the responding officer and victims, not to

explain information or give opinions. Thus, when using an

interpreter, you should

❑ Stand or sit across from victims, in a glare- and 

shadow-free area, with the interpreter beside you so 

that victims can easily shift their gaze between you and

the interpreter.
VII. Crime Victims Who Are Deaf or Hard of Hearing

21

❑ Speak at a normal volume and pace and directly to victims, not to the interpreter. Never ask “How is he feeling?” or say “Ask her how she is feeling.” Address your

question to victims: “How are you feeling?”

❑ Ask victims, not the interpreter, to repeat or clarify an

answer if you do not understand it.

❑ Take breaks. Interpreting (signing) and receiving 

information visually can be tiring for both interpreters

and victims.

● Recognize that a Deaf culture exists. This culture has a

language—ASL—and experiences, practices, and beliefs

about itself and its connection to the larger hearing society.

Crime victims who identify with the Deaf culture may live

more isolated from the hearing society and be less comfortable with that society, including you, than victims for

whom their hearing loss is merely a physical condition.
First Response to Victims of Crime Who Have a Disability

22

VIII. Directory of Service Providers 

Alzheimer’s Disease

Alzheimer’s Association

(800) 272–3900; (312) 335–8882, TTY

www.alz.org 

Alzheimer’s Association’s Safe Return Program

Crisis Line: (800) 572–1122; (314) 647–5959, TTY

Nonemergency Line: (888) 572–8566; (888) 500–5759, TTY

www.alz.org/caregiver/programs/safereturn.htm 

Americans with Disabilities Act of 1990 and 

Section 504 of the Rehabilitation Act of 1973

Americans with Disabilities Act Information Line

(800) 514–0301; (800) 514–0383, TTY

www.usdoj.gov/crt/ada/adahom1.htm 

Office of Justice Programs

U.S. Department of Justice

(202) 307–0690; (202) 307–2027, TTY

Blindness or Visual Impairment

American Council of the Blind

(800) 424–8666

www.acb.org 

American Foundation for the Blind

(800) 232–5463; (212) 502–7662, TTY

www.afb.org 

Deafness or Hard of Hearing

National Association of the Deaf

(301) 587–1788; (301) 587–1789, TTY

www.nad.org 

National Institute on Deafness and 

Other Communication Disorders

(800) 241–1044; (800) 241–1055, TTY

www.nidcd.nih.gov 
VIII. Directory of Service Providers

23

Registry of Interpreters for the Deaf

(703) 838–0030; (703) 838–0459, TTY

www.rid.org 

Mental Illness

National Alliance for the Mentally Ill

(800) 950–6264; (703) 516–7227, TTY

www.nami.org 

National Depressive and Manic-Depressive Association

(800) 826–3632

www.ndmda.org 

Treatment Advocacy Center

(703) 294–6001

www.psychlaws.org 

Mental Retardation

American Association on Mental Retardation

(800) 424–3688

www.aamr.org 

National Down Syndrome Congress

(800) 232–6372

www.ndsccenter.org 

The Arc of the United States

(800) 433–5255

www.thearc.org 

Other National Victim Resources

Battered Women’s Justice Project

(800) 903–0111

www.bwjp.org 

Childhelp USA/Forrester National Child Abuse Hotline

(800) 422–4453; (800) 222–4453, TTY

www.childhelpusa.org 

Family Violence Department’s Resource Center on 

Domestic Violence: Child Protection and Custody

(800) 527–3223

http://nationalcouncilfvd.org 
First Response to Victims of Crime Who Have a Disability

24

Family Violence Prevention Fund/Health Resource Center

(888) 792–2873; (800) 595–4889

www.endabuse.org 

Mothers Against Drunk Driving

(800) 438–6233

www.madd.org 

National Center for Missing and Exploited Children

(800) 843–5678; (800) 826–7653, TTY

www.ncmec.org 

National Center for Victims of Crime

(800) 394–2255; (800) 211–7996, TTY

www.ncvc.org 

National Children’s Alliance

(800) 239–9950

www.nca-online.org 

National Clearinghouse for Alcohol and Drug Information

(800) 729–6686; (800) 487–4889, TTY; (800) 735–2258,

TTY Relay Service

www.health.org 

National Clearinghouse on Child Abuse and 

Neglect Information

(800) 394–3366

www.calib.com/nccanch 

National Coalition Against Domestic Violence

(800) 537–2238; (800) 553–2508, TTY

www.ncadv.org 

National Criminal Justice Reference Service

(800) 851–3420; (877) 712–9279, TTY

www.ncjrs.org 

National Domestic Violence Hotline

(800) 799–7233; (800) 787–3224, TTY

www.ndvh.org 

National Fraud Information Center

(800) 876–7060

www.fraud.org 
VIII. Directory of Service Providers

25

National Organization for Victim Assistance

(800) 879–6682

www.try-nova.org 

Office for Victims of Crime Resource Center

(800) 627–6872; (877) 712–9279, TTY

www.ojp.usdoj.gov/ovc/ovcres 

Parents of Murdered Children

(888) 818–7662

www.pomc.org 

Rape, Abuse & Incest National Network

(800) 656–4673

www.rainn.org
First Response 

to Victims of Crime Who

Have a Disability

For copies of this guide and/or additional information,

please contact

OVC Resource Center

P.O. Box 6000

Rockville, MD 20849–6000

Telephone: 1–800–627–6872 or 301–519–5500

(TTY 1–877–712–9279)

Or order OVC publications online at http://puborder.ncjrs.org.

E-mail questions to askovc@ojp.usdoj.gov.

Send your feedback on this service to tellncjrs@ncjrs.org.

Refer to publication number NCJ 195500.

For information on training and technical

assistance available from OVC, please contact

OVC Training and Technical Assistance Center

10530 Rosehaven Street, Suite 400

Fairfax, VA 22030

Telephone: 1–866–OVC–TTAC (1–866–682–8822)