U.S. Department of Justice 

Office of Justice Programs 

Responding to Victims of 

Terrorism and Mass 

Violence Crimes 

Coordination and Collaboration Between 

American Red Cross Workers and 

Crime Victim Service Providers 

“Putting Victims First” 
U.S. Department of Justice 

Office of Justice Programs 

810 Seventh Street NW. 

Washington, DC 20531 

Alberto R. Gonzales 

Attorney General 

Regina B. Schofield 

Assistant Attorney General 

John W. Gillis 

Director, Office for Victims of Crime 

Office of Justice Programs 

Partnerships for Safer Communities 

www.ojp.usdoj.gov 

Office for Victims of Crime 

www.ovc.gov 

NCJ 209681 

This document was prepared by the Office for Victims of Crime and the American 

Red Cross under contract number OJP–2001–253–M, 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. 

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. 
Contents

Introduction and Overview  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1

OVC/American Red Cross Collaborative Timeline  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2

Natural Disasters, Acts of Terrorism, and Mass Violence Crimes: 

Similarities and Differences  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3

Office for Victims of Crime  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6

Crime Victim Assistance and Services  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8

Grants and Funding Available to Organizations Through OVC  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10

Basics of the Criminal Justice Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11

Conclusion  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13

References and Resources  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14

Responding to Victims of Terrorism and Mass Violence Crimes
1 

Introduction and Overview 

T he American Red Cross (ARC) and the Office for 

Victims of Crime (OVC) in the U.S. Department 

of Justice fill critical and complementary roles in 

assisting victims of terrorism and mass violence. The 

deceased, survivors, and bereaved family members in 

these events are victims of a deliberately perpetrated 

criminal act. As such, they may be eligible for both 

state and federally legislated services and ARC 

disaster services. 

Disaster-related human need and suffering trigger 

ARC relief operations. ARC disaster operations are 

activated based on the results of a disaster, not its 

cause. ARC assists communities affected by natural 

disasters, epidemics, transportation accidents, terrorism, weapons of mass destruction, and other hazards. 

In contrast, OVC and state and local crime victim 

assistance programs are activated when there is significant indication that a disaster has been caused by 

a criminal act. When both ARC and crime victim service agencies are involved in a response, thoughtful 

coordination of each program’s efforts facilitates better service to victims and family members. 

Responding to Victims of Terrorism and Mass Violence Crimes 

Since 1983, OVC has assisted crime victims at the 

federal, state, and local levels by funding direct 

support, advocacy programs, and compensation 

programs for crime-related expenses. More recently, 

OVC has supported the development of innovative 

programs and approaches for assisting victims 

and their families in cases like the bombing of the 

Alfred P. Murrah Building in Oklahoma City, the 

Columbine High School shootings, the bombing of 

the USS Cole, and the September 11 terrorist attacks 

in Pennsylvania, New York, and Virginia. 

Similarly, ARC provided a range of disaster relief 

services in each of these criminal incidents, including 

food, shelter, emergency financial assistance, mental 

health support, and assistance with locating missing 

persons. The National Transportation Safety Board 

(NTSB) designated ARC to be the lead family assistance provider following aviation disasters. ARC disaster relief services are activated immediately after an 

air disaster, usually before the cause of the crash has 

been determined. 
2 

Collaborative Timeline

OVC/American Red Cross

important cooperative effort by providing ARC with T

o better serve the victims of terrorism and mass

violence, ARC, OVC, and the Executive Office

for U.S. Attorneys (EOUSA) signed a letter of

intent in 1996 that emphasized the necessity for close

interagency cooperation among OVC, ARC, the U.S.

Attorney’s Office victim­witness coordinators, and

state compensation and assistance programs to

ensure timely and appropriate delivery of services to

victims. This agreement was based on lessons learned

from the Oklahoma City bombing response.

In 1999, ARC implemented a weapons of mass

destruction/terrorism program to ensure that chapters

across the Nation and in all lines of service are prepared to respond to terrorist incidents. This comprehensive program includes preparedness guidance

and training for ARC chapters, information for the

American public, and outreach to other federal

agencies—including OVC—to promote a coordinated

response. 

Although nothing could have prepared our country

completely for the events of September 11, 2001, the

working relationship between OVC and ARC enabled

both agencies to effectively meet unforeseen challenges and provide needed assistance to the victims

of these horrific events. This booklet supports this 

the following information and support:

■ It acquaints ARC chapters and disaster services

staff and volunteers with the needs and rights of

crime victims involved in these disasters so ARC

may coordinate with crime victim assistance programs at the local, state, and federal levels during nationally administered relief operations.

■ It assists ARC’s disaster relief workers in responding to the unique concerns of victims of criminal

acts involving terrorism and mass violence.

This booklet addresses the following issues: 

■ How are natural disasters similar to and different

from disasters caused by criminal human

behavior?

■ How can ARC workers assist victims of terrorism

and mass violence crimes? 

■ What is the Office for Victims of Crime?

■ What types of crime victim assistance and services may bereaved family members and survivors

receive following human­caused disasters?

■ What is the significance of the criminal justice

system for victims of terrorism and mass violence?

Responding to Victims of Terrorism and Mass Violence Crimes
3 

Natural Disasters, 

Similarities and Differences 

Acts of Terrorism, and 

Mass Violence Crimes: 

M any types of natural disasters, such as floods, 

tornadoes, and hurricanes, follow regional 

and seasonal patterns. These patterns provide 

some degree of familiarity and predictability for community victims, emergency responders, and disaster 

relief workers. When a major disaster is caused by 

deliberate human acts, sudden and unexpected 

threat, horror, and destruction inevitably impact innocent and unsuspecting people in the course of their 

daily routines. The resulting deaths and property 

destruction become reminders to many of their own 

vulnerability and their inability to keep their loved 

ones out of harm’s way. When fostering terror is the 

goal, the threat of attack at any time and in any public setting is implicit and intended. 

In the guidelines for OVC’s Antiterrorism and 

Emergency Assistance Program for Terrorism and 

Mass Violence Crimes, “terrorism occurring within the 

United States” is defined as— 

Activities that (A) involve acts dangerous to 

human life that are a violation of the criminal 

laws of the United States or of any State, (B) 

appear to be intended—(i) to intimidate or 

coerce a civilian population; (ii) to influence the 

policy of a government by intimidation or coercion; or (iii) to affect the conduct of a government 

by mass destruction, assassination, or kidnaping; 

and (C) occur primarily within the territorial jurisdiction of the United States [18 U.S.C. § 2331, 

as amended]. 

Responding to Victims of Terrorism and Mass Violence Crimes 

OVC has developed a working definition of “mass 

violence” as— 

An intentional violent criminal act, for which a


formal investigation has been opened by the


Federal Bureau of Investigation (FBI) or other law


enforcement agency, that results in physical, emo­


tional, or psychological injury to a sufficiently


large number of people to significantly increase


the burden of victim assistance and compensation


for the responding jurisdiction as determined by


the OVC Director. 


The psychological and emotional aftereffects of a 

major disaster are more severe and longer lasting 

when the disaster results in significant numbers of 

Mass violence crimes may be under federal 

or state jurisdiction, but acts of terrorism are 

always federal crimes. 

The characteristics of a disaster, which include a lack 

of warning, extreme threat to life, exposure to trauma, and uncontrollability, also contribute to the 

fatalities, seriously injured victims, and destroyed businesses and homes. Those most personally touched are 

likely to experience the greatest suffering. Surviving 

victims and bereaved families will experience a range 

of short- and long-term impacts that are emotional, 

physical, financial, and legal. 

Emotional and Psychological 

Effects of Disaster
4 

severity and duration of the victims’ psychological reactions. It is important to note that these attributes can be 

associated with either natural or human-caused disasters. Because mass casualties are usually an objective 

of terrorism, mass violence crimes, or incidents involving weapons of mass destruction, adverse psychological consequences are likely to be prominent. 

Effects of Media Coverage 

Criminal events that are highly traumatic and cause 

mass casualties receive considerable media coverage, 

exposing millions of U.S. citizens and people around 

the world to the horror and trauma of the tragedy. 

ARC disaster relief workers, traveling from different 

parts of the country, have likely viewed the disaster 

and its impact on television and bring their own reactions, fears, opinions, and personal vulnerabilities to 

the disaster operation. Disasters involving violent criminal mass victimization result in intensified psychological reactions not only among victims and families, but 

relief workers as well—thus making the relief effort 

more challenging and stressful. 

Disaster’s Effects on 

Targeted Groups 

The crime may have targeted a particular group 

defined by culture, religion, nationality, politics, or ethnicity. Or, the crime may have been perpetrated by 

individuals from a specific group. Unfortunate social 

reactions may include blaming, scapegoating, stereotyping, and acting with prejudice to inflict additional 

trauma on already disenfranchised groups. Anger and 

the desire for revenge may motivate some people to 

aggressively act out their fears and feelings of powerlessness. It is important that relief workers foster community healing through respectful and equal treatment 

of all who seek services. 

The table below presents many of the key differences 

between natural and human-caused disasters. The 

more prepared ARC relief workers are for the unique 

challenges of disasters involving criminal mass victimization, the better able they are to understand and 

respond to victims’ needs. 

Comparison of Natural Disasters and Acts of Terrorism and Mass Violence Crimes 

Acts of Terrorism 

Natural Disasters and Mass Violence Crimes 

Examples Hurricanes, earthquakes, tornadoes, floods, Terrorist bombs, mass riots, aircraft hijackings, 

volcanic eruptions, wildfires, droughts. mass shootings, bioterrorism attacks. 

Cause Act of nature, interactions between natural forces Human evil intent, deliberate sociopolitical act, 

and human error or actions. human cruelty, revenge, hate or bias against a 

group, mental illness. 

Response	 Local government emergency management 

agency leads the response activities; other 

agencies lend needed support. 

Response environment often more complex, 

intense, demanding, chaotic, and stressful. 

Disaster impact area is a crime scene, which may 

limit the movements of responders. 

Subjective 

Experience expressed about the power and destruction of 

The event seems incomprehensible and senseless. 

disasters pose ongoing threat. Anger and blame Some view the disaster as uncontrollable and 

are directed toward agencies/individuals unpredictable, while others view it as preventable. 

responsible for prevention, mitigation, and Outrage, blaming the responsible individual or 

disaster relief. group, desire for revenge, and demand for justice 

are common. 

Responding to Victims of Terrorism and Mass Violence Crimes 

Expectations defined by disaster type. Awe Victims suddenly caught unaware in a dangerous, 

life-threatening situation. Many experience terror, 

nature. Disasters with warnings increase feelings fear, horror, helplessness, betrayal, and violation. 

of predictability and controllability. Recurring 
5 

Comparison of Natural Disasters and Acts of Terrorism and Mass Violence Crimes (continued) 

Acts of Terrorism 

Natural Disasters and Mass Violence Crimes 

Psychological 

Impact 

Separation from family members, trauma, 

evacuation, lack of warning, threat to life, and 

loss of irreplaceable items and homes contribute 

to disaster stress reactions. Property loss and 

damage are often primary results of a disaster; 

reactions are related to loss, relocation, financial 

stress, and daily challenges. Traumatic stress from 

a disaster is typically resolved in 18 months 

unless the number of fatalities and serious injuries 

was high. 

Mass casualties, threat to life, exposure to trauma, 

and prolonged recovery efforts may result in 

significant and long-term physical and emotional 

reactions. Higher rates of posttraumatic stress 

disorder (PTSD), depression, anxiety, and 

traumatic bereavement that can last a long time. 

World View/ 

Basic 

Assumptions 

Spiritual beliefs may be shaken (“How could 

God allow this destruction?”). Lost sense of 

security in “terra firma”—no longer believe the 

earth is solid and dependable. Loss of all illusion 

of invulnerability—realization that everyone is 

vulnerable to random acts of nature. 

Assumptions about humanity change—that the 

world is secure, just, orderly, and that danger can 

be kept out. Survivors confronted with the reality 

that evil things can happen to good people. 

Resulting distrust and fear of people or being 

“out in the world,” may cause withdrawal and 

isolation. Loss of the illusion of invulnerability— 

realizing that anyone can be in the wrong place 

at the wrong time. 

Stigmatization 

of Victims 

Disasters tend to have greater impact on people 

with fewer economic resources because they 

live in more vulnerable, lower cost residences that 

are less structurally sound and located in higher 

risk areas. Certain groups, including survivors 

from specific cultural, racial, and ethnic groups; 

single parent families; people with disabilities; 

and the elderly on fixed incomes experience 

greater barriers to recovery, causing double 

jeopardy and potential stigma. 

Some victims may come to feel humiliation, 

responsibility for others’ deaths, survivor guilt, 

self-blame, and unworthy of assistance—thus 

assigning stigma to themselves. The larger 

community, associates, friends, and even family 

may become distant to avoid facing the fact that 

crime victimization could happen to anyone. 

Well-meaning loved ones may urge victims and 

those bereaved to “move on,” causing them to 

feel rejected and wrong for continuing to suffer. 

Hate crimes reinforce the discrimination and 

stigma that targeted groups may already 

experience. 

Secondary Disaster relief and assistance agencies and Victims’ needs may conflict with necessary steps 

Injury bureaucratic procedures can be seen as inefficient, in the criminal justice process. Steps required to 

fraught with stressors, and impersonal. obtain crime victim benefits and compensation 

Disillusionment can set in when the gap between can seem confusing, frustrating, and bureaucratic, 

losses, needs, and available resources is realized. triggering feelings of helplessness. Bias-crime 

Victims rarely feel that they have been “made victims may suffer prejudice and blame. Victims 

often feel that the remedy ordered or the 

punishment imposed on the criminal is inadequate 

compared to the crime and their losses.

Media Risk of violations of privacy of vulnerable victims. Risk of violations of privacy and retraumatization 

by graphic media exposure and replays. The 

greater the horror and psychological impact, 

fosters a sense in the disaster-impacted community the greater the media interest. 

that “the rest of the world has moved on.” 

Responding to Victims of Terrorism and Mass Violence Crimes 

whole” through relief efforts.

Need to protect children from harmful media 

exposure. Short-term, temporary media interest 
Office for Victims of Crime 

6 

T he Victims of Crime Act (VOCA) was passed by 

Congress in 1984 with the overarching goals of 

reducing the mental health and other negative 

consequences of crime victimization and supporting 

victim participation in the criminal justice process. 

Programs supported through VOCA funding that focus 

on these goals have been implemented at the federal, 

state, and local levels across the country. Funding for 

these programs is derived primarily from fines and 

penalties assessed against convicted defendants of 

federal crimes, which are deposited into the Crime 

Victims Fund (the Fund). The funds are also used to 

compensate victims for out-of-pocket crime-related 

expenses, including medical and mental health services, lost wages, and burial expenses. OVC oversees 

the distribution of monies in the Fund to federal, state, 

and local programs. In addition, OVC plays a major 

role in influencing policies and procedures for the 

delivery of crime victim services in the field. 

Services provided by VOCA-funded local crime victim 

assistance programs include crisis intervention, advocacy, and accompaniment to hearings and trials. 

They also provide support groups and trauma counseling for families of homicide victims and for victims 

of violent crime, including sexual assault, sexual 

abuse, and domestic violence. At the local level, 

crime victim assistance programs may be affiliated 

with police departments, district attorneys’ offices, 

hospitals, and mental health agencies. Nationwide, 

there are more than 10,000 victim assistance 

programs. Further, all 50 states and 5 U.S. territories 

have crime victim compensation programs. 

Large scale criminal acts, such as the bombing of Pan 

Am Flight 103, the bombing of the Alfred P. Murrah 

Building in Oklahoma City, and the September 11 

terrorist attacks victimized thousands of people. 

Whether responding to a single assault victim or to 

thousands victimized by a terrorist attack, crime victim 

service organizations implement the following basic 

service goals: 

■ Protect the civil and legal rights of crime victims. 

■ Promote and restore the victim’s sense of safety 

and dignity. 

■ Provide information about, and support victim 

participation in, the criminal justice process. 

■ Facilitate access to state crime victim and other 

appropriate compensation programs. 

■ Streamline procedures for accessing services 

and benefits. 

In response to criminal acts of mass violence or terrorism, OVC coordinates with other federal and state 

agencies and nongovernmental organizations, including the American Red Cross (ARC). OVC disseminates information about resources, services, benefits 

and compensation; posts news releases; uploads timely information on available services to the OVC Web 

site; and may provide assistance in the form of 

Responding to Victims of Terrorism and Mass Violence Crimes 
7 

resources and referrals to crime victims through a 

national toll free help line. In addition, OVC provides 

technical assistance and supplemental funding to 

local crime victim assistance programs working directly with the victims and their families. 

OVC relies on local programs to implement and staff 

crime victim services. Although ARC does not get 

involved at the local level with individual victims of 

crime, it works closely with OVC to ensure that victims of mass violence and terrorism are made aware 

of their rights and benefits. 

Although ARC replicates its operational procedures 

consistently from disaster to disaster, variation can be 

expected from state to state with regard to the roles 

and capacities of crime victim service programs. 

Although state and local crime victim assistance programs have considerable expertise in assisting crime 

victims who have suffered violent and traumatic 

crimes, some programs may not have experience 

mobilizing a response to a large scale disaster. 

Communication and effective coordination are necessary between appropriate personnel within ARC, 

OVC, the FBI, the U.S. Attorney’s Office victim-witness 

coordinator staff, the state compensation and assistance programs, local crime victim service provider 

agencies, and others who can facilitate timely access 

to the range of available services provided by each 

entity. 

Responding to Victims of Terrorism and Mass Violence Crimes 
8 

A s shown below, different types of assistance are 

available to crime victims at the federal, state, 

and local levels. At the ARC disaster operational 

level, liaison typically occurs with the state crime victim compensation program, the state U.S. Attorney’s 

Office victim-witness coordinator, and the local victim 

assistance programs that are active in the crime victim 

compensation application process and in providing 

crisis counseling services and other services. 

Services Available to Victims and 

Families Through OVC 

Victim and Family Assistance Call Center 

In certain circumstances, victims and families of victims may obtain information, assistance, and referrals 

through a national toll free hotline established by 

OVC. 

Web site 

Victims, their families, and the general public may 

seek information on the official OVC Web site. 

Information is provided about services; financial assistance; benefits provided by federal, state, local, and 

helpful Web links.

voluntary agencies; resources for coping with emotional trauma and loss; publications targeted for specific groups; updates on the criminal justice response; 

legal rights of crime victims and their families; and 

Crime Victim Assistance 

and Services

Services Available to Victims and 

Families Through State Crime 

Victim Compensation Programs 

Crime victims and their family members may receive 

financial assistance with victim-related expenses (e.g., 

funerals, medical, mental health counseling, lost 

wages, loss of support). These programs are funded 

by states and receive additional funding via annual 

OVC formula grants. In cases of human-caused disaster, possible funding may be available from OVC’s 

Antiterrorism and Emergency Assistance Program for 

Terrorism and Mass Violence Crimes. It is important to 

note that crime victim compensation programs are 

payors of last resort. This means that these programs 

fund crime-related expenses that other programs or 

organizations will not or cannot, such as a victim’s 

private health insurance company, employer, or 

another social service agency. Please note that state 

programs vary slightly in terms of eligibility and benefits. Contact the specific state where the crime has 

occurred to determine exactly what costs are covered 

by the program. 

Responding to Victims of Terrorism and Mass Violence Crimes 
9 

Services Available to Victims and 

Families Through Local Crime 

Victim Assistance Programs 

Crime victims, their families, and others affected by 

the crime may receive crisis intervention and counseling, advocacy, grief and trauma counseling, and 

information and referral, depending on the local program focus and capacity. These programs are funded 

by various sources, including annual OVC VOCA 

formula funds granted to states that are then subgranted to local victim assistance programs. For information on the location of victim assistance programs in 

a state, you may access OVC’s Directory of Crime 

Victim Services on the OVC Web site or contact the 

VOCA assistance agency in your state. 

Responding to Victims of Terrorism and Mass Violence Crimes 
Grants and Funding Available to 

Organizations Through OVC 

10 

O VC administers the Antiterrorism and 

Emergency Assistance Program for Terrorism 

and Mass Violence Crimes. Eligible applicants 

for this program include state victim assistance and 

victim compensation programs; U.S. Attorneys’ 

offices; victim service and nongovernmental organizations; and federal, state, and local governments. 

Funding is available to assist eligible applicants in the 

aftermath of terrorism and mass violence incidents. 

Individual victims are not eligible to apply directly 

for funds, but may receive assistance through the 

organizations that receive grants through this 

program. 

Grants are available for the following categories of 

assistance: 

■ Crisis Response Grants. Provide emergency 

funds to help victims build adaptive capacities, 

decrease stressors, and reduce symptoms of trauma immediately following the terrorism or mass 

violence event. 

■ Consequence Management Grants. 

Provide supplemental funds to help victims recover from the traumatic event and to restore a sense 

of equilibrium. 

■ Crime Victim Compensation Grants. 

Provide supplemental funds to state crime victim 

compensation programs to reimburse victims for 

out-of-pocket expenses related to their victimization. 

■ Criminal Justice Support Grants. Provide 

supplemental funds to facilitate victim participation in the investigation or prosecution directly 

related to a terrorist act or mass violence incident. 

■ Training and Technical Assistance. Provide 

tools to help federal, state, and local authorities 

identify victim needs and needed resources, coordinate services to victims, develop strategies for 

responding, and address related issues. Training 

for mental health service providers is available in 

coordination with the Center for Mental Health 

Services (U.S. Department of Health and Human 

Services) and others. 

Responding to Victims of Terrorism and Mass Violence Crimes 
11 

Basics of the 

Criminal Justice Process 

W hen people suffer personal and property losses due to a natural disaster, they typically engage with unfamiliar bureaucracies and 

procedures involving a range of federal, state, and 

voluntary agencies, in addition to receiving directions 

from their insurance carriers. The process can be 

confusing, frustrating, and overwhelming at times. 

Similarly, when victimized by a crime, those affected 

may become involved with law enforcement personnel, prosecutors’ offices, and trial proceedings. 

Criminal justice procedures may not appear to make 

sense and can seem far removed from obtaining justice. Events throughout the criminal justice process 

often trigger painful feelings and distress for victims 

and families. 

Basic information about the criminal justice system is 

included in this booklet so that ARC workers may better understand this key aspect of the aftermath of 

mass criminal victimization. For many victims and 

family members, a critical part of coming to terms 

with having been traumatically victimized is participating in the criminal justice process. Because the disaster was caused by a deliberate human act, all who 

have been impacted have been victimized by a crime 

that is punishable through the criminal justice system. 

Determining culpability and imposing punishments for 

these criminal acts are of significant concern for many 

crime victims and their loved ones. 

Responding to Victims of Terrorism and Mass Violence Crimes 

Overview of the Criminal Justice 

Process: Investigation and 

Prosecution 

Following an act of terrorism or mass violence, an 

investigation begins. If the investigation has identified 

suspects, then these alleged perpetrators may be 

arrested if located and depending on the circumstances of the case. When the initial investigation is 

completed, the law enforcement agency makes recommendations regarding the criminal offense charges 

to the prosecutor’s office. The case is then transferred 

to the office responsible for prosecution of the crime. 

Prosecution 

A preliminary hearing or grand jury may be conducted to determine if there is sufficient evidence to proceed to trial. At the arraignment hearing, the suspect 

or accused is informed of the charges pending. At 

this point, the accused is referred to as “the defendant.” The defendant then enters a plea of “guilty” or 

“not guilty.” Each of these steps is likely to be distressing for victims and their loved ones. 

Duration 

There may be a long delay before the case goes to 

trial. If there has been considerable publicity surrounding the crime, the location of the trial may be 
12 

moved to another part of the country, making it more 

difficult for families to attend. The trial, sentencing, 

and appeals process may continue for years after the 

event. Updates regarding the discovery process, case 

events, continuances, and plea or sentence bargaining may be provided via telephone, written correspondence, and/or an official government Web site 

administered by the jurisdiction prosecuting the case. 

Victim Impact Statement 

During the sentencing phase of a criminal trial, some 

victims and family members may elect to provide written and/or oral victim impact statements to the judge 

and/or jury. A victim impact statement allows victims 

to express how the crime has affected their lives. 

Victim service providers can assist victims with a written or oral impact statement as this is often an 

extremely important and emotional process for crime 

victims. 

Role of Victim Assistance and 

Advocacy Programs 

A primary mission of OVC, U.S. Attorneys’ Offices, 

state and local prosecutor offices, and crime victim 

assistance programs is to ensure that crime victims 

and their loved ones have the following: 

■ Information about the criminal investigation, the 

criminal justice system, the prosecution of the 

criminal case against the defendants, upcoming 

proceedings, and status updates. 

■ Emotional support that anticipates and responds 

to the impact of key events in criminal justice 

proceedings. 

■ Opportunities to make informed decisions about 

participation in the criminal justice process. 

■ Protections from intimidation and harassment. 

Crime victim assistance providers and advocates 

remain engaged with the victims and their family 

members until the criminal justice process has concluded. In contrast to most ARC disaster relief and 

assistance responses, crime victim assistance programs may remain actively engaged for many years. 

In particular, the trial and sentencing phases require a 

significant programmatic response to ensure that the 

civil and legal rights of crime victims are protected. 

Advocacy and trial support involve providing frequent 

informational updates and explanations of case issues 

and legal procedures; providing crisis counseling and 

emotional support; possibly establishing closed-circuit 

television sites for viewing the trial; and funding the 

travel and lodging costs for out-of-town victims and 

family members attending the trial. 

Responding to Victims of Terrorism and Mass Violence Crimes 
13 

Conclusion 

F ollowing an act of terrorism and/or mass violence, components of ARC, OVC, and state and local crime victim assistance programs have key 

coordinated response to victims is enhanced by 

■ Understanding the unique issues faced by crime 

victims. 

roles in assisting victims and their families. A timely, 

■ Being informed about local and state crime victim 

assistance and compensation agencies and their 

services.

Exchanging resource information and clarifying the 

assistance roles and responsibilities prior to an act of 

terrorism or incident of mass violence aid coordination 

during the aftermath and, most importantly, result in 

victims having access to needed services more quickly. 

Responding to Victims of Terrorism and Mass Violence Crimes 
14 

References 

American Red Cross. (2001). Terrorism—Preparing 

for the Unexpected. Washington, DC: American Red 

Cross. 

Center for Mental Health Services. (2004). Mental 

Health Response to Mass Violence and Terrorism: A 

Training Manual. Rockville, MD: U.S. Department of 

Health and Human Services. 

Center for Mental Health Services. (In press). Mental 

Health Response to Mass Violence and Terrorism: A 

Field Manual. Rockville, MD: U.S. Department of 

Health and Human Services. 

Office for Victims of Crime. (2001). OVC Handbook 

for Coping After Terrorism: A Guide to Healing and 

Recovery. Washington, DC: U.S. Department of 

Justice. 

Office for Victims of Crime. (2000). Responding to 

Terrorism Victims: Oklahoma City and Beyond. 

Washington, DC: U.S. Department of Justice. 

Office for Victims of Crime. (2000). First Response to 

Victims of Crime: A Handbook for Law Enforcement 

Officers on How To Approach and Help. Washington, 

DC: U.S. Department of Justice. 

References and Resources

U.S. Department of Justice. (2000). Attorney General 

Guidelines for Victim and Witness Assistance. 

Washington DC: U.S. Department of Justice. 

Helpful Internet Sites 

American Red Cross 

www.redcross.org 

Center for Mental Health Services (CMHS), Substance 

Abuse and Mental Health Services Administration 

(SAMHSA) 

U.S. Department of Health and Human Services 

http://www.mentalhealth.samhsa.gov/cmhs 

Office for Victims of Crime (OVC) 

U.S. Department of Justice 

www.ovc.gov 

Office for Victims of Crime Resource Center (OVCRC)


www.ncjrs.org


Office for Victims of Crime Training and Technical


Assistance Center (OVCTTAC)


www.ovcttac.org


Responding to Victims of Terrorism and Mass Violence Crimes 
15 

Contact Information for State 

Crime Victim Assistance and 

Compensation Programs 

Information on all assistance and compensation programs can be found online. The National Association 

of VOCA Assistance Administrators provides 

information about crime victim assistance at 

www.navaa.org. The National Association of Crime 

Victim Compensation Boards provides information 

about crime victim compensation programs at 

www.nacvcb.org. OVC provides state contact information for crime victim assistance and compensation 

programs at www.ovc.gov/help/links.htm. 

Responding to Victims of Terrorism and Mass Violence Crimes 
Responding to Victims of Terrorism 

and Mass Violence Crimes: 

Coordination and Collaboration 

Between American Red Cross 

Workers and Crime Victim 

Service Providers 

This document is available in electronic form only. 

For additional information, please contact 

OVC Resource Center 

P.O. Box 6000 

Rockville, MD 20849–6000 

Telephone: 1–800–851–3420 or 301–519–5500 

(TTY 1–877–712–9279) 

www.ncjrs.org 

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

Submit your questions to Ask OVC at http://ovc.ncjrs.org/askovc. 

Send your feedback on this service via http://tellncjrs.ncjrs.org. 

Refer to publication number NCJ 209681. 

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) 

(TTY 1–866–682–8880) 

www.ovcttac.org