Officer Safety and Wellness (OSW) Group Meeting Summary

Officer Deaths and 

Injuries from Gunfire

January 26, 2012

Contents

Overview of the Officer Safety and Wellness Group......................................................... 1

Identifying and Prioritizing Officer Safety and Wellness Issues ................................. 1

Introduction ..................................................................................................................... 3

OSW Group Meeting Summary ........................................................................................ 4

Research on Gunfire Deaths and Injuries .................................................................. 5

Remarks from the U.S. Attorney General................................................................... 7

Officer Gunfire Death Case Studies............................................................................ 8

Tampa (FL) Police Department ............................................................................ 9

Oakland (CA) Police Department....................................................................... 10

Independent Review ........................................................................................... 11

Discussion and Action Agenda ................................................................................. 12

The VALOR Initiative ............................................................................................... 14

Observations............................................................................................................. 15

Conclusion...................................................................................................................... 15

References ...................................................................................................................... 16

Appendix A: OSW Group Meeting Agenda ..................................................................... 17

Appendix B: OSW Group Meeting Attendees ................................................................. 19

Appendix C: Remarks from the U.S. Attorney General.................................................. 21
1

Overview of the Officer Safety and Wellness Group

The U.S. Department of Justice’s Office of Community Oriented Policing Services 

(COPS Office) and the Bureau of Justice Assistance (BJA) have established the national 

Officer Safety and Wellness (OSW) Group. 

Comprised of representatives from law enforcement agencies and associations, federal 

agencies, and the research community, the purpose of the OSW Group is to bring 

law enforcement thought leaders, criminal justice practitioners, and other colleagues 

together to share their broad perspectives on improving officer safety and wellness. 

Participants contribute information and ideas with the goal of enhancing subjectrelated products, tools, resources, and services available to the field. In addition, the 

group encourages the nation’s law enforcement agencies to adopt cultures of safety and 

wellness. 

The OSW Group Mission

The OSW Group will contribute to the improvement of officer safety and wellness in 

the United States by convening a forum for thoughtful, proactive discussion and debate 

around relevant programs and policies within the law enforcement field. Information 

and insight gained and shared will help enhance programs, policies, and initiatives 

related to officer safety and wellness.

The OSW Group Goals

◾ To create an opportunity and environment for law enforcement organizations and 

researchers to collaborate on improving officer safety and wellness 

◾ To bring law enforcement organizations and researchers together quarterly to share 

knowledge and information about officer safety and wellness initiatives 

◾ To disseminate information and best practices to the field through the government 

and law enforcement organizational communications mechanisms 

Identifying and Prioritizing Officer Safety and Wellness Issues

The first OSW Group meeting was held on July 20, 2011. More than 40 participants 

representing federal, state, and local law enforcement; national law enforcement 

associations; law enforcement labor unions; and researchers examined the problems 

and challenges with officer safety and wellness. They established initial priorities and 

focused on deaths and injuries related to gunfire. 
2

The second OSW Group meeting, held on September 22, 2011, further explored 16 

critical safety and wellness issues facing the law enforcement field. The issues below 

are presented in order of priority as established by the group and form the basis for 

previous and future meetings and the mission: 

1. Injuries and death due to gunfire 

2. Premeditated and unprovoked ambush situations 

3. Rifle/long-gun threats/assault weapons 

4. Education and training 

5. Leadership and safety practices 

6. Emergency vehicle operation and safety 

7. Physical health (e.g., fatigue, alcohol, weight, and nutrition) 

8. Psychological health 

9. Foot pursuit safety 

10. Task force operations (federal and local) 

11. Offenders (behavior during incident and history) 

12. Court security 

13. Deployment strategies and communications technologies 

14. Maintaining good health 

15. Equipment 

16. Former military in law enforcement 

These issues are grouped into four themes: Operational and Emergency Responses, 

Leadership and Management, Mental and Physical Health and Wellness, and Training.
3

Introduction

The unfortunate reality is that—despite measured improvements 

in the overall crime rate—incidents of violence against law 

enforcement officers are approaching the highest levels we’ve 

seen in nearly two decades.

— Eric H. Holder, Jr., Attorney General of the Un

The U.S. Department of Justice established the national Officer Safety and Wellness 

(OSW) Group to help address the alarming trend of increasing deaths of law 

enforcement officers in the line of duty. The Office of Community Oriented Policing 

Services (COPS Office) and the Bureau of Justice Assistance (BJA) have joined together 

to support the work of the OSW Group through convening meetings to focus on the 

priorities established by the group. The COPS Office/BJA planning meeting established 

16 priority areas to guide the work of the OSW Group. The first meeting, held 

September 22, 2011, focused on gaining a better understanding and insight into officer 

deaths and injuries. The second meeting, held on January 26, 2012, in Washington, 

D.C., addressed the first priority area—officer deaths and injuries from gunfire. 

The agenda was structured to provide the OSW Group with insight on gunfire deaths 

and injuries through presentations on the current state of research and two case 

studies from agencies that had lost officers to gunfire incidents. Participants heard from 

U.S. Attorney General Eric H. Holder, Jr., who praised the OSW Group for its work 

on “shin[ing] a light on the most pressing threats our law enforcement officers face” 

and encouraged the group to be innovative in its approach to combat these threats. 

Attendees also heard from BJA Director Denise O’Donnell and COPS Office Director 

Bernard Melekian. 

The OSW Group was charged with responding to questions and providing 

recommendations to the field in four areas (see Discussion and Action Agenda on 

page 12):

Research: What are the gaps in the existing research for officer gunfire deaths and 

injuries? 

Policy: What policies should guide law enforcement in handling gunfire deaths and 

injuries? 

Training: What type of training do officers need?  

Practice/Programs: What specific practices or programs (including internal and 

external communications) should departments have to address officer gunfire deaths 

and injuries? 

This report presents a summary of the meeting and OSW Group recommendations.
4

OSW Group Meeting Summary 

The meeting opened with introductory comments by BJA Director Denise O’Donnell 

and COPS Office Director Bernard Melekian. Both stressed the importance of the work 

on officer safety and wellness and the partnership created between BJA and the COPS 

Office. 

As the meeting host, the National Law Enforcement Officers Memorial Fund (NLEOMF) 

CEO Craig Floyd welcomed the group and provided a statistical “picture” that outlined 

the current national view on officer deaths and injuries:

◾ Of the 19,298 officers on the National Law Enforcement Memorial:

— 10,787 (56%) were due to firearms, 

— 5,364 (28%) were traffic-related, and 

— 3,147 (16%) were due to other causes.

◾ In 2011, there was a 16% increase in total fatalities, and a 20% increase in fatal 

shootings since 2010.

◾ In 2011, traffic-related fatalities decreased by 10%, making it the third lowest 

category in causes of officer fatalities in 15 years.

◾ Of the 177 officers killed in 2011, the average age was 42; the average length of 

service was 13 years; 166 were male; and 11 were female.

◾ More than 30% of officers killed were not wearing body armor.

◾ 21% of officers killed in traffic crashes were not wearing seat belts.

Furthermore, Mr. Floyd reported that NLEOMF analyses from 2001 to 2010 profile 

these cop killers as:

◾ Average age was 30.

◾ 98% were male.

◾ 82% had a prior criminal arrest.

◾ 23% had a prior criminal arrest for assaulting an officer or resisting arrest.

◾ 28% were under judicial supervision at the time of the incident.

◾ 11% were under the influence of a controlled substance.

◾ 10% were under the influence of alcohol or intoxicated at the time.

Mr. Floyd encouraged a continued emphasis for law enforcement officers to wear body 

armor and seatbelts.
5

Research on Gunfire Deaths and Injuries 

Robert Kaminski, Ph.D., Associate Professor, University of South Carolina 

Dr. Kaminski was asked to provide the OSW Group with both an overview of the current state of 

research that has examined officer gunfire deaths and injuries and his perspective on the research 

gaps. He addressed a wide range of issues:

Murders and Fatal Shootings of Law Enforcement Officers. An examination of police murdered from 

1900 to 2010 using data from the NLEOMF indicates two high-risk periods: the 1920s, when the risk 

was much higher than any other period, and a more recent peak in the early 1970s after which rates 

of murders and fatal shootings of police declined precipitously. According to data from the FBI’s Law 

Enforcement Officers Killed and Assaulted (LEOKA) data,1

 murders in the U.S. increased from 41 in 

2008, to 48 in 2009, to 56 in 2010—the highest number since 2002. Preliminary 2011 data from the 

NLEOMF, however, shows a 15% increase in fatal shootings over 2010, from 59 to 68 (including four 

officers killed in U.S. Territories in 2011). If this finding holds, it would represent the first consecutive 

3-year increase in murders in more than 2 decades. 

Non-Fatal Assaults. According to the LEOKA data, rates of non-fatal assaults and injury assaults on 

law enforcement officers have declined overall since the mid-1990s. Analysis of the rate of firearmrelated injury assaults (in which a gun was either present or caused the injury) also declined since the 

1990s. However, there was an increase in 2009 to 2010 of 3.5% of non-fatal assaults on officers.

Importance of Tracking Non-Fatal Shootings. While the analysis of murders and fatal shootings of 

law enforcement officers is useful, such analysis can be misleading in that it presents an incomplete 

picture of the levels of potential deadly violence against police. Several prior studies have shown that 

the number of non-fatal shootings in a jurisdiction dwarf the number of fatal shootings. For example, 

analysis of fatal and non-fatal shootings in the New York City Police Department (NYPD) from 1970 to 

2010 demonstrates that relying only on fatal shooting analysis would have failed to uncover the rising 

level of gun violence directed at NYPD officers that began in the early 1980s and peaked in the early 

1990s. 

Fatal Ambush Shootings. The rate of fatal ambush shootings of police has increased substantially 

since the mid-1980s. Much of this increase has been driven by unprovoked attacks. The rate of 

entrapment/premeditated shootings also increased, but less dramatically. The increase in fatal ambush 

shootings is concerning, but the increase may be due, in part, to changes in reporting practices by law 

enforcement agencies (Barnett-Ryan 2011). Thus, the data should be interpreted with caution.

Overrepresentation of African Americans. LEOKA data also reveals African Americans were 

vastly overrepresented as felons who murdered police. Although African Americans comprised 

approximately 12–13% of the U.S. population in recent decades, they represented 44.4% of felons who 

murdered police between 1980 and 2010. In several years over the last decade, African Americans 

comprised more than 50% of felons who murdered police, approaching 60% in 2010 (57.9%). Effective 

strategies for reducing African-American involvement in serious attacks on police are needed. 

1. Robert Kaminski has analyzed and interpreted all information presented from the LEOKA database, accessible at www2.fbi.gov/ucr/killed/2009/index.html. 
6

Murders by Members of Extremist Groups. According to data from the Global Terrorism Database 

(www.start.umd.edu/gtd/), leftwing extremist groups (e.g., Black Nationalists, Black Liberation 

Army, and Weather Underground) were responsible for many fatal attacks on police during the 

1970s. Although leftwing attacks have since subsided, there has been an increase in fatal attacks (31 

murders) on police by rightwing extremists, such as skinheads, militias, and patriot groups between 

1990 and 2009 (Suttmoeller, Gruenewald, Chermak, and Freilich 2011). Most of these attacks were 

unplanned, and about one-fifth occurred during traffic stops.

Foot Pursuits. Foot pursuits have come under increased scrutiny in recent years, in part because of 

concerns of officer-involved shootings during these events. A national survey of several hundred law 

enforcement agencies employing 100 or more sworn officers in 2011 found that 86.7% did not have 

written policies governing foot pursuits. Of those that had a written policy, 72.7% left decisions to 

pursue to officer discretion, 25.8% restricted foot pursuits to specific criteria, and 1.5% discouraged 

all foot pursuits. Regardless of whether agencies had a written policy, other survey questions revealed 

many agencies allowed their officers to engage in these risky practices. Excluding emergency 

exceptions, 13.6% required apprehension of fleeing suspects via a containment strategy, 14.4% 

prohibited officers from continuing a pursuit after losing sight of a suspect, 72.1% allowed partner 

splitting, and 75.9% allowed officers to pursue suspects into buildings or other structures. Although 

78.9% of responding agencies required officers to radio in pursuit-related information early on or 

before engaging in a foot pursuit, only 23.3% required officers to cease a pursuit if communication was 

lost. Only 20.7% of respondents reported their agencies provided in-service training on foot pursuits. 

(Kaminski, Rojek, and Cooney 2011) 

Mentally Ill Offenders. The deinstitutionalization movement in the United States dramatically 

increased police contact with mentally ill persons. According to the Treatment Advocacy Center 

website (2007), in 1998 mentally ill persons killed police at a rate 5.5 times greater than the general 

population, and police were more likely to be killed by mentally ill persons (13%) than by assailants 

who had a prior arrest for assaulting police or resisting arrest (11%). Analysis of FBI LEOKA data 

shows that the number of officers killed by mentally ill offenders ranged from 2 to 11 each year from 

1980 to 2010, though the trend in the number of reported murders has been declining. Unfortunately, 

the mental status of persons who murder police is often unknown, so the number of murders 

attributed to mentally ill persons is likely an undercount (Miller 2009). 

Weapon Type and Major Calibers. According to the LEOKA data, handguns remain the weapon 

of choice among felons who murder police, though the number of handgun murders declined 

substantially between 2006 and 2009 (from 85.7% to 57.6%, with an increase to 68.3% in 2010), with 

a concomitant increase in the number of rifle murders between 2005 and 2009 (from 6.7% to 33.3%, 

followed by a decline to 26.8% in 2010). The percentage of murders committed with semiautomatic 

handguns had been increasing dramatically since 1987, reaching a peak in 2006 (68.6%). The 

percentage of murders committed with semiautomatic rifles has also been increasing, though 

irregularly, since 1987; however, there was a steady year-to-year rise from 2005 to 2010 (from 4.4% 

to 19.5%). Also, the use of fully automatic rifles has been increasing since 1987, but their use is rare 

(never exceeding 5% or two murders per year). Among the most common handgun calibers, the use 

of .45s has been increasing since 1987; however, the use of .40 caliber handguns increased more 
7

dramatically, from 3.6% in 1993 to a peak of 22.9% in 2006, to 19.5% in 2010. Although more common 

for many years, the use of .38 and .357 caliber handguns shows rather irregular patterns of use. 

Looking at the three most recent years of data, the use of .357s increased from 9.4% in 2008 to 19.5% 

in 2010, while .38s declined from 28.1% in 2008 to 9.8% in 2010. Regarding the most common caliber 

rifles, the use of .30s increased from 1.8% of murders in 1987 to a peak of 18.4% in 1994, followed by a 

decline to 9.8% in 2010. The use of .223 caliber rifles shows an erratic trend, varying widely for many 

years, but the data indicate a mostly steady increase from zero in 2008 to 7.3% in 2010. 

Multiple Victim Incidents. Analysis of the LEOKA data reveals the number of fatal shooting incidents 

in which two or more officers were murdered fluctuated substantially year to year since 1987, ranging 

from a low of zero in 1996 to a high of six (14.3%) in 2004. The next highest peak occurred in 2009, 

with five incidents (13.2%). In general, the trend in multiple officer murders has been increasing since 

the mid-1990s. The number and percentage of victim officers murdered in multiple officer shootings 

has also been increasing since the mid-1990s. For example, 10 officers (17.2%) were fatally shot in 

such incidents in 1997, 13 (27.1%) were shot in 2004, and 15 (34.9%) were fatally shot in 2009. 

Fatal Head Wounds and Number of Body-Entry Wounds. LEOKA data show that from 1980 to 

2010, 46% of officers were fatally shot in the head. An examination of this trend shows a fairly steady 

increase in percentage, from 35.2% in 1980 to a peak of 58.5% in 1999. There has been a decline since 

then, with 42.3% in 2010. In addition, the average number of bullet entry wounds from 1987 to 2010 

also was examined. This analysis, however, was impeded in that the number of bullet entry wounds 

was often reported as “multiple” rather a precise figure (between 4.5% and 58.8% during the 1987 to 

2010 timeframe). The maximum number of known bullet entry wounds among victim officers was 40, 

inflicted with a semiautomatic rifle. Based on the knowledge that the “multiple” incidents involved 

two or more bullet entry wounds, the data show a generally increasing trend of the percentage of 

officers fatally shot in this way through 1994 (58.8%); the trend then leveled off through 2005 (56.3%) 

and declined through 2009 (34.9%). The percentage then increased in 2010 (51.1%), just above the 

timeframe mean of exactly 50%. 

The research clearly shows a general decline in officer deaths from gunfire for the past few decades. 

Although gunfire deaths did increase, at times, for two consecutive years followed by a decline, there 

has been three years of consecutive increases from 2008 to 2011, which is cause for concern. 

The felonious death of a law enforcement officer is most certainly a tragic event. Such deaths, 

however, are rare events—given the number of officers and encounters an officer has each day—which 

makes it difficult to analyze the circumstances and identify approaches to reverse this trend and 

reduce deaths. Dr. Kaminski recommends that non-fatal officer shootings be tracked and analyzed to 

fully understand officer gunfire death and injury situations. 

Remarks from the U.S. Attorney General

The Honorable Eric H. Holder, Jr., Attorney General of the United States 

General Holder addressed the importance of the officer safety and wellness issues, especially officers’ 

deaths by gunfire. The highlights of General Holder’s remarks are noted below; however, the full text is 

included in Appendix C on page 21. 
8

◾ This is the third time we’ve come together to discuss this cause. This matters to me very personally; 

I care about the men and women in law enforcement, and am privileged to work with colleagues and 

friends.

◾ I want to acknowledge the contributions you’ve already made. It is sincerely appreciated and 

extremely important. This group has an indispensable role to play on pressing threats to officers, 

especially in these economic times. We are advocating for new training opportunities, and 

highlighting best practices so every law enforcement officer can do their job more safely and 

effectively. 

◾ The unfortunate reality is that the overall crime rate and incidents against law enforcement 

officers have reached the highest point in two decades. A total of 177 federal, state, and local law 

enforcement officers lost their lives in the line of duty in 2011, which was a 16% increase since 2010. 

Since 2012, 12 officers have been killed. In draft remarks, the number was originally 10, but that had 

to be changed in the last 24 hours. This is a devastating trend. That’s what this working group is all 

about.

◾ We are helping the DOJ to do everything in our power. The department’s latest efforts are guided by 

the OSW Group’s leadership, bolstered by NIJ’s research and BJA’s programs and partnerships. Our 

Bulletproof Vest Partnership helped save the lives of 16 law enforcement officers last year and one 

this year. The department is also building on efforts to improve communications and tools to identify 

and tackle threats.

◾ We are also working with Congress to help agencies gain access to the necessary tools. We recognize 

the ability to build on trends, and the department has worked on VALOR to address ambush style 

threats. More than 1,700 law enforcement professionals have received VALOR training in 10 regional 

sessions across the country. Some officers have described the training as a wakeup call and said it 

was the best training they had received in a long time. The website has registered 1.7 million hits. We 

plan to keep improving and expanding this program and also want to enhance the key factors that 

promote understanding.

◾ One study examined shift lengths. Ten-hour shifts were better than 8- or 12-hours shifts. A second 

study gathered data on sleep performance. Forty percent of police officers screened positive for some 

sleep disorder. It turns out that these sleep-deprived officers had a higher risk of falling asleep while 

driving, committing errors or safety violations, and experiencing uncontrolled anger at a suspect. I’m 

confident that these and other important findings will enhance our ability to target areas of concern, 

evaluate officer wellness issues as they arise, and explore strategies for taking action. 

◾ As our nation’s attorney general, as a prosecutor and former judge, and as the brother of a 

retired police officer, I am extremely grateful for the contributions that you have made and the 

recommendations you will be developing, helping to implement, and building upon in the days 

ahead.

Officer Gunfire Death Case Studies 

One of the most effective ways of gaining insight into officer deaths from gunfire is to look at actual 

cases. The OSW Group heard presentations on officer deaths in Tampa, Florida, and Oakland, 

California. Prior to the meeting, the group also had the opportunity to review independent reports on 

those two cases as well as an officer death in Baltimore, Maryland. James K. “Chips” Stewart, who led 

the review teams in all three cities, participated in these presentations. 
9

Tampa (FL) Police Department 

Chief Jane Castor

THE INCIDENT – On June 29, 2010, at 2:15 am, the Tampa Police Department (TPD) suffered a tragic 

loss when Officers David Curtis and Jeffrey Kocab were shot and killed during a traffic stop. The 

suspect—convicted felon Dontae Morris—fled the scene on foot and evaded immediate arrest. The 

subsequent law enforcement response and multi-jurisdictional manhunt involved 22 law enforcement 

agencies and more than 1,000 personnel during a 96-hour deployment that culminated in the arrest of 

Morris. TPD established a multi-agency unified command using the Incident Command System (ICS) 

to plan, coordinate, and manage the complex response, which included volunteers and donations from 

the community.

The Tampa Police Department (TPD) and surrounding law enforcement agencies had participated in 

many major events and had established a well developed Incident Command System (ICS) process 

that was immediately launched even though their initial expectation was they would have Morris in 

custody within a few hours. Chief Castor shared with the OSW Group a number of important points in 

managing the event:

◾ Incident Command. The search and investigation was a massive undertaking that handled hundreds 

of tips from the community while effectively managing the resources. ICS provided a solid base for 

ensuring that everything was handled in an appropriate manner.

◾ Separate Search and Investigation. These functions operated under separate command to ensure 

that both proceeded as expeditiously and thoroughly as possible. They maintained close contact 

throughout the search to ensure appropriate information updates and exchange. 

◾ Communications. The communications process—both internally and externally—was critical in 

ensuring that everyone was informed of what they needed to know and when. 

Rumor control is an important aspect of the communication process, as it can have a negative 

impact on the community and officers. There is a huge demand for information on the progress of 

the investigation, the search, the suspect, the officers that lost their lives, and how family, friends, 

and colleagues are coping. That requires thoughtful and regular communication processes through 

the news media and internal mechanisms. 

The TPD made sure that the deaths of Officers Curtis and Kocab were personalized, providing 

information about their families as well as their professional lives. It wanted to provide the 

community and department with an opportunity to mourn the loss of the officers and to build 

support for the department as they engaged in the search and beyond. 

Chief Castor prepared e-mail updates for officers in the department in addition to her personal 

contacts to ensure they were aware of what was going on every step of the way. 

◾ Funeral Preparations. Preparations for the officers’ funerals had to go on as the investigation and 

search for the suspect continued. This required officers dedicated to working with the families to 

make the preparations. It also required a high level of sensitivity and understanding that the event 

was of great importance to the families, the officers, and the community. 

◾ Stress Debriefings. These briefings had to be made available for officers so they can learn from the 

situation. Consideration must be given to making them mandatory to improve officer awareness and 

increase their ability to stay safe should they encounter a similar incident in the future.
10

◾ SWAT Teams. The TPD blended their SWAT teams with the other agencies that assisted in the 

search. They regularly train together, so there was a high level of familiarity among the personnel 

and similarity regarding practices. One aspect the department would handle differently in future 

situations would be to deploy the SWAT teams in the field to assist in the search. During the 2010 

incident, they had been staged at the command center to respond to locations where the suspect 

was located. By deploying them from one location, the media followed the teams out to possible 

search locations and watched SWAT’s every move.

◾ Traffic Stop Arrests. Learning from the past, the TPD has modified its traffic arrest policy: as one 

officer approaches the vehicle, the suspect is required to extend his or her hands and arms outside 

the vehicle window. 

The TPD also asked CNA Analysis & Solutions to conduct an independent review of the department’s 

response to the deaths of Officers Curtis and Kocab. This review was under the direction of James K. 

“Chips” Stewart and funded by the U.S. Department of Justice, Office of Community Oriented Policing 

Services (see Stewart, Rodriguez King, and Lafond 2011). 

Oakland (CA) Police Department 

Deputy Chief Benson Fairow, Bay Area Rapid Transit

Former captain of the Oakland Police Department and inspector general

THE INCIDENT – On March 21, 2009, at 1:00 pm, Oakland Police Sergeant Mark Dunakin stopped a 

vehicle for a stop sign violation, backed up by Officer John Hege. The driver—convicted felon Lovelle 

Mixon—was alone in the vehicle. As the officers approached the vehicle, Mixon leaned out of the 

driver’s side window and shot both officers twice. He got out of the car and shot both officers in the 

back as they were lying on the street. Mixon fled on foot. Less than 2 hours after the officers were 

shot, an ad hoc SWAT team entered an apartment about a block from the traffic stop location. Within 

two minutes after entry, Sergeant Ervin Romans and Sergeant Daniel Sakai were killed, as was Mixon. 

(Stewart 2009)

Deputy Chief Fairow presented the circumstances of this terrible loss of life to the OSW Group and 

what the Oakland Police Department (OPD) had learned from a Board of Inquiry that reviewed the 

incident at the OPD’s (see Stewart 2009). The OPD has committed itself to the implementation of the 

Board of Inquiry’s recommendations. 

What Went Well

The department responded quickly to the incident—the first lieutenant on the scene began the 

important work of establishing control of the scene, identifying witnesses, and developing a perimeter. 

The community responded well with assistance, as did surrounding law enforcement agencies.

What Needed Improvement 

As is often the case when incidents are subjected to a careful review, the list of what needs to be 

improved is longer than what went well: 

◾ Vehicle Stop. The way in which the officers approached the vehicle together on the driver’s side was 

not consistent with OPD training and best safety practices.
11

◾ Incident Command. Incident command practices were not implemented. Although the responding 

lieutenants divided the responsibility (i.e., scene, perimeter, and search for the suspect), there 

was no overall operational control, and no command post was established. This led to confusion 

and poor use of outside and OPD resources responding to the scene. Many of the areas in need of 

improvement can be linked to the failure to implement incident command. 

◾ Communications. Citizens received little communication about the incident and the response. Poor 

communications between the officers engaged in the investigation and search for the suspect led to 

critical information not being available. 

◾ SWAT Team Response. An ad hoc team was formed to make a dynamic entry into the apartment 

to search for the suspect. The full complement of regular team members, hostage negotiators, and 

equipment were not available to support an entry of this type. Although the initial SWAT team 

call out was delayed by 45 minutes, there was no reason for the ad hoc team to not wait for these 

resources before entering the apartment. 

The OPD has implemented many changes because of this incident. It has worked hard to be 

transparent so that others can learn from its experience and so the OPD can contribute to preventing 

this type of situation from happening again. 

Independent Review 

James K. “Chips” Stewart, Senior Fellow, CNA’s Institute for Public Research 

Mr. Stewart worked with both the Tampa and Oakland Police Departments to provide an independent 

review of the shooting incidents discussed above. He also chaired the Independent Review Board that 

examined another tragic shooting incident in which a Baltimore police officer was accidentally killed 

by fellow officers, another officer and three citizens were wounded, and one citizen lost his life (see 

Independent Review Board 2011). 

Mr. Stewart provided the OSW Group with his perspective on the lessons learned from these three 

cases and made several observations:

◾ An outside transparent review is important for public credibility and to help restore trust in the 

police agency and its leaders.

◾ External analysis not only helps de-conflict varying perspectives but also helps overcome the 

tendency to overlook errors surrounding line-of-duty deaths.

◾ Fundamental tactical errors contribute to police officer deaths and injuries, so periodic training and 

effective field supervision are important for prevention.

◾ Supervision and command are essential and must be present and accountable during these 

incidents—in two of the above cases incident command was not implemented.

◾ Findings and recommendations ought to be collected and shared to save lives and avoid future 

tragedies.

◾ External and internal communications require an overall strategy and are critical to the response as 

well as recovery from the incident. 
12

Discussion and Action Agenda

Based on the research presentation, case studies, background reading, individual expertise, and 

discussions throughout the day, the OSW Group broke into four smaller groups, each to discuss the 

four areas highlighted in the Introduction (see page 3): i.e., research, policy, training, and practice/

programs. Each group was given questions to discuss and identify recommendations/comments 

regarding these areas. The OSW Group meeting facilitator, Bascom “Dit” Talley, faculty coordinator of 

Johns Hopkins University, asked attendees to provide observations and recommendations in the four 

areas outlined below: 

Research: What are the gaps in the existing research for officer gunfire deaths and injuries? 

◾ A broader, more encompassing database should be developed that includes:

—Line-of-duty deaths and assaults 

—Demographics on offenders and officers

—The kinds of calls that conclude with deaths and assaults

—Lessons learned from the incidents

—Information on “near misses” 

◾ Better methods should be developed to capture and record aggravated assaults. 

◾ The precursor events that might contribute to deaths and assaults should be recorded. There may 

be lessons to learn by dissecting the events leading up to the confrontational event. For example, 

did the officer notify dispatch that he or she was going to make a vehicle stop? Did the officer miss 

the release of a BOLO that might have saved his or her life? Do the agency’s officers fail to read 

updated policies and procedures that might have saved a life?

◾ Whether the safety products are effective and how the equipment can be improved should also be 

looked into. For example, agencies could work with industries to develop stronger materials used in 

body armor gear and ensure proper fitting to maximum coverage. Smart phone technology can be 

used for reaching out to the community for help, and agencies can capitalize on military-released 

technology, such as the backpack radar Prism 200C System that can see through walls to determine 

how many and where suspects are located in the adjacent room. Also, license plate readers could be 

made available to identify known suspects.

◾ There are gaps in data on officers dealing with the mentally ill and specifically on guns used by 

the mentally ill. There is no screening process for selling guns to people with mental illness. While 

some states may require a background check for felons, a mentally ill person may not have a felony 

record but may still be a danger. The extent of the problem and recommendations in addressing this 

issue need to be addressed through better data collection and research.

◾ Research should also focus on whether officers’ interpersonal skill-levels contribute to these 

incidents. Officers’ verbal judo is a highly valued skill and often not utilized in confrontational 

situations. Often an officer elects to use the ECW (Electronic Control Weapons) to control a 

situation when verbal techniques could have brought the situation under control.

◾ Departments should evaluate if they have the necessary technology to provide suspect information 

more quickly: e.g., license plate readers, the capability to relay confidential information that the 

agency does not want aired through radio communication, and Closed Circuit Television (CCTV).
13

Policy: What policies should guide law enforcement in handling gunfire deaths and injuries? 

◾ The following are examples of policies that a department should not only currently have but also 

review for ongoing updates and have internally audited to ensure they are being implemented 

properly:

—Incident command

—Officer deaths (e.g., notifications, a family liaison, and funeral planning)

—Critical incident stress debriefing

—Safety equipment (e.g., vests and seatbelts)

—Clear use of force and reporting directives

—Communications (external and internal)

—Memorandums of understanding (MOUs) with neighboring jurisdictions

◾ Most departments have written policies that address many of the issues related to officer gunfire 

deaths and injuries. Because these are such rare events and emotions can take over, it is important 

to make sure commanders and supervisors are aware of the department’s expectations and follow 

them.

◾ Policy development and updates should include a review of the research and an understanding of 

the best practices. 

Training: What type of training do officers need?  

◾ Because shootings are rare events, officers need to be reminded of its possibility through realistic 

tactical training that is a part of the ongoing in-service training regimen.

◾ Officers need more interpersonal and cultural training for situational awareness and how not to 

escalate a situation.

◾ Training in critical thinking and decision making would improve officers’ abilities to work through 

what steps should be taken and what to anticipate at each decision point during a violent or 

potentially violent situation.

◾ Officers across the country should be routinely informed of the circumstances of officer gunfire 

deaths and injuries and any lessons learned through video or a power point. A video is available 

on the secure VALOR for Blue website that describes a foot pursuit situation in which the officer 

survived and includes safety guidelines. 

◾ Vehicle stops are a regular part of a street officer’s daily work and are conducted without incident 

most of the time. They are also a high-risk activity, and officers need to be regularly reminded of 

safe practices. 

◾ Departments should consider alternatives to the way traffic stops are conducted. For example, the 

Maryland State Police Troopers often approach a vehicle they have stopped on the passenger side—

the driver does not expect it, the trooper is taken out of the stream of traffic, and this approach 

provides a better view of the driver. 
14

Practice/Programs: What specific practices or programs (including internal and external 

communications) should departments have to address officer gunfire deaths and injuries? 

◾ Effective communications is always a challenge for police agencies—it is even more difficult during 

high-stress and high-profile events. Roles, responsibilities, and tactics can and should be defined in 

advance with a clear communications strategy.

◾ Departments should develop a process for objective after-action reviews of these incidents and take 

steps to correct any problems identified to help save future lives. 

◾ Every department should have a safety education program that includes frequent reminders and 

tips. 

◾ Departments must work to create a culture where safety is an integral part of everything the 

department does. An agency that consistently practices safety will be more inclined to implement 

training techniques and procedures more effectively in crisis situations.

The VALOR Initiative

Steve Edwards, Ph.D., Senior Policy Analyst, Bureau of Justice Assistance

Dr. Edwards made a presentation to OSW Group members to ensure they were aware of the 

capabilities of the VALOR (Preventing Violence Against Law Enforcement Officers and Ensuring 

Officer Resilience and Survivability) initiative, which the Bureau of Justice Assistance created over a 

year ago and continues to evolve as a resource for law enforcement. Officers can register and access a 

wide range of information and online training at www.valorforblue.org, which has received 1.7 million 

visits to date. The program goals are to: 

◾ Reduce violence against law enforcement

◾ Improve officer survivability

◾ Identify emerging criminal threats

◾ Develop and deliver knowledge and skills-based training to address threats effectively

◾ Recognize emerging threats

◾ Establish a culture of attentive vigilance among law enforcement

VALOR offers a two-day line officer training course designed to increase officer safety and help 

prevent injuries and death. It promotes situational awareness about threats and helps officers to 

identify concealed weapons and armed gunmen. The course also expands mental and physical skills 

required for high-risk tactical situations. This training has been provided to more than 1,700 officers 

in 10 regions across the country and has been well received. 
15

Observations

Alexander Eastman, M.D., Lieutenant and Deputy Medical Director, Dallas (TX) Police Department 

Lieutenant Eastman gave the final presentation of the day after being asked to share his perspective 

on officer gunfire deaths and injuries. He argued that policing was behind other professions in the way 

they look at mistakes, and he challenged the group to think differently about these issues and work to 

become more transparent. The aviation industry, he explained, responded to an increase in crashes in 

the 1970s by carefully looking at processes for solutions and not assigning blame. Similarly, an awful 

outcome in surgery is followed by an unrestricted, multi-disciplinary group discussion that looks at 

ways in which the incidents could have been handled differently. Lieutenant Eastman recommended 

that the OSW Group:

◾ Expand its collection and analysis of data to include “near misses.”

◾ Create an independent review mechanism similar to what the FAA does on transportation crashes. 

◾ Officer deaths and gunfire injuries are incidents that are held up in criminal cases, civil litigation, 

and internal administrative investigations. Doing a critical review of one incident is difficult enough, 

thus looking at these cases across various jurisdictions is even more challenging. 

Conclusion

The U.S. Attorney General has given his personal commitment and that of the U.S. Department of 

Justice to enhance officer safety in situations of gunfire resulting in officer injuries and death. In 

response to General Holder’s commitment, the OSW Group discussion at this meeting focused on 

advancing research on, improving the response to, and preventing the occurrence of officer shootings. 

Based on a thoughtful, full-day deliberation, the group identified points for consideration regarding 

gaps in research, areas to improve training, review of policies and procedures, and practices to 

emphasize to minimize officer deaths and injuries by gunfire. There is more work to do in this area, 

but this begins the national discussion and helps to identify best practices for training, policies and 

procedures, and programs. 
16

References

Barnett-Ryan, Cindy. 2011. Personal communication to FBI Statistician Cindy Barnett-Ryan on 

September 2.

Independent Review Board. 2011. The Baltimore Police Department: Police-Involved Shooting of 

January 9, 2011. CNA’s Institute for Public Research. 

www.cna.org/sites/default/files/news/2011/Baltimore%20Shooting%20Report.pdf

Kaminski, Robert J., Jeff Rojek, and Mikaela Cooney. 2011. “Police Foot Pursuits: Policy, Practice 

and Training.” Paper presented at the annual meeting of the American Society of Criminology, 

Washington, D.C., November 16–19.

Miller, Chuck. 2009. Personal communication from FBI LEOKA Program Coordinator Chuck Miller 

on February 11.

Stewart, J. K. 2009. Independent Board of Inquiry into the Oakland Police Department. CNA’s 

Institute for Public Research. 

www2.oaklandnet.com/oakca/groups/police/documents/webcontent/dowd005731.pdf

Stewart, J. K., D. Rodriguez King, and R. Lafond. 2011. Tampa Bay Manhunt After-Action Report: 

Lessons Learned in Police-Community Partnerships and Use of the Incident Command System.

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

www.cops.usdoj.gov/ric/ResourceDetail.aspx?RID=625

Suttmoeller, Michael, Jeff Gruenwald, Steven Chermak, and Joshua Freilich. 2011. “A Comparison 

of Law Enforcement Homicides and Other Homicides Committed by Far-Right Extremists.” Paper 

presented at the annual meeting of the American Society of Criminology, Washington, D.C., November 

16–19.

Suttmoeller, Michael, Steve Chermak, Joshua Freilich, and Sarah Fitzgerald. 2011. “Radicalization 

and Risk Assessment.” In Crime and Terrorism Risk: Studies in Criminology and Criminal Justice, 

edited by Leslie W. Kennedy and Edmund F. McGarrell, 80–96. New York: Routledge.

Treatment Advocacy Center. 2007. “Law Enforcement and People with Severe Mental Illness—

Backgrounder.” Arlington, VA: Treatment Advocacy Center. 

www.treatmentadvocacycenter.org/resources/consequences-of-lack-of-treatment/jail/1385

VALOR (Preventing Violence Against Law Enforcement Officers and Ensuring Officer Resilience and 

Survivability). 2012. Institute for Intergovernmental Research. 

www.valorforblue.org
17

Appendix A: OSW Group Meeting Agenda

Pew Conference Center 

901 E Street, NW

Washington, DC 20004

Thursday, January 26, 2012

8:30 – 9:00 AM Participant Arrival

9:00 – 9:15 AM Welcome 

by Denise O’Donnell, J.D., Director, Bureau of Justice Assistance 

by Bernard Melekian, Director, Office of Community Oriented Policing Services

by Craig Floyd, Chairman and Chief Executive Officer, 

National Law Enforcement Officers Memorial Fund 

9:15 – 9:30 AM Meeting Purpose

Facilitator: Darrel Stephens, Executive Director, Major Cities Chiefs Association

9:30 – 9:45 AM Introduction of Participants

Facilitator: Bascom “Dit” Talley, Faculty Coordinator, Johns Hopkins University 

9:45 – 10:45 AM Research on Gunfire Deaths and Injuries

Presenter: Robert Kaminski, Ph.D., Associate Professor, 

University of South Carolina 

10:45 – 11:00 AM Break

11:00 – 11:45 AM The Honorable Eric H. Holder, Jr., Attorney General of the United States

Introducer: Bernard Melekian, Director, 

Office of Community Oriented Policing Services

11:45 AM – 12:30 PM Working Lunch: 

Focus on Gaps in Research 

12:30 – 2:00 PM Officer Gunfire Death Case Studies 

Presenter: Jane Castor, Chief of Police, Tampa (FL) Police Department 

Presenter: Benson Fairow, Deputy Chief of Police, Bay Area Rapid Transit (BART) 

(CA) Police Department, on behalf of the Oakland (CA) Police Department

Discussant: James K. “Chips” Stewart, Director, 

CNA’s Institute for Public Research

Facilitator: Bascom “Dit” Talley, Faculty Coordinator, Johns Hopkins University

2:00 – 2:10 PM Break
18

2:10 – 3:25 PM Gunfire Deaths and Injuries: Discussion and Action Agenda

Participants will address the following issues:

Research: 

What are the gaps in the existing research for officer gunfire 

deaths and injuries?

Policy: What policies should guide law enforcement in handling gunfire 

deaths and injuries? 

Training: What type of training do officers need?  

Practice/Programs: What specific practices or programs 

(including internal and external communications) should departments 

have to address officer gunfire deaths and injuries? 

Facilitator: Bascom “Dit” Talley, Faculty Coordinator, Johns Hopkins University 

3:25 – 3:40 PM VALOR: Preventing Violence Against Law Enforcement Officers and 

Ensuring Officer Resilience and Survivability

Presenter: Steve Edwards, Ph.D., Senior Policy Analyst, 

Bureau of Justice Assistance

3:40 – 3:55 PM Next Meeting Focus: Education and Training

Participants will identify issues in this area to prepare for the next meeting. 

Facilitator: Bascom “Dit” Talley, Faculty Coordinator, Johns Hopkins University 

3:55 – 4:10 PM Observations by Alexander Eastman, M.D., 

 Lieutenant and Deputy Medical Director, Dallas (TX) Police Department 

Closing Remarks by Darrel Stephens, Executive Director, 

Major Cities Chiefs Association

4:10 PM Adjourn 
19

Appendix B: OSW Group Meeting Attendees

Karen L. Amendola, Ph.D.

Chief Operating Officer

Police Foundation

Pamela J. Cammarata

Associate Deputy Director

Bureau of Justice Assistance

Jane Castor

Chief of Police

Tampa (FL) Police Department

Alexander L. Eastman, M.D.

Lieutenant and Deputy Medical Director

Dallas (TX) Police Department

Joshua A. Ederheimer

Principal Deputy Director

Office of Community Oriented 

Policing Services

Benson H. Fairow

Deputy Chief of Police

Bay Area Rapid Transit (BART) (CA) 

Police Department

Craig W. Floyd

Chairman and Chief Executive Officer

National Law Enforcement Officers 

Memorial

Stephanie A. Garbarczuk

Law Enforcement Coordination Manager

U.S. Attorney’s Office – DC .

Joel Garner, Ph.D.

Chief of Law Enforcement Statistics Unit

Bureau of Justice Statistics

Herbert V. Giobbi, J.D.

Chief Operating Officer

National Law Enforcement Officers 

Memorial

Katherine Goodwin

Commander

Anne Arundel County (MD) 

Police Department

Elliott E. Grollman

Commander

Federal Protective Service

David L. Harlow

Acting Deputy Assistant Director

U.S. Marshals Service

William Haskell

Public Safety Sector Coordinator

National Institute for Occupational 

Safety and Health

Rachel Hedge

Director of Government Affairs

National Association of Police 

Organizations

Dennis Hyater

Program Manager

Commission on Accreditation for 

Law Enforcement Agencies

Robert Kaminski, Ph.D.

Associate Professor

University of South Carolina

John Kenny, Ph.D.

Associate Director

Institute for Non-Lethal Defense 

Technologies

Applied Research Laboratory

The Pennsylvania State University

Matthew Klein

Commander

Metropolitan (DC) Police Department

David A. Klinger, Ph.D.

Associate Professor

University of Missouri – St. Louis

John V. Lease

Tactical Teams Program Manager

Law Enforcement Plans Division

Office of the Provost Marshal

Joint Forces Headquarters NCR

Leonard Matarese

Director of Research and 

Project Development

International City/County 

Management Association

Bernard K. Melekian

Director

Office of Community Oriented 

Policing Services

Michael Miller

Detective

Metropolitan (DC) Police Department

Brian Montgomery

Physical Scientist

National Institute of Justice

Charles A. Norman

Law Enforcement Program Specialist

Federal Law Enforcement 

Training Center

Denise O’Donnell

Director

Bureau of Justice Assistance

Mark Person

Commander of Training and 

Education Division

Prince George’s County (MD) Police 

Department

Terrence Pierce

Director of Policy and Planning Division

Montgomery County (MD) 

Police Department

Adrienne Quigley

Lieutenant

Arlington County (VA) Police Department

Timothy S. Reid

Principal Consultant LEOKA Program

Federal Bureau of Investigation

Timothy M. Richardson

Senior Legislative Liaison

National Fraternal Order of Police

Daniel Rodriguez

Sergeant 

Anne Arundel County (MD) 

Police Department

Ellen Scrivner, Ph.D.

National HIDTA Director

Office of National Drug Control Policy

James D. Sewell, Ph.D.

Independent Consultant

Steve Sharkey

Director of Special Projects

Baltimore (MD) Police Department

Darrel Stephens

Executive Director

Major Cities Chiefs Association

James “Chips” Stewart

Director of Public Safety and Security

CNA’s Institute for Public Research

Bascom “Dit” Talley

Faculty Coordinator

Johns Hopkins University

Erin Vermilye

SACOP Manager

International Association of 

Chiefs of Police

Chuck Wexler

Executive Director

Police Executive Research Forum

Fred G. Wilson

Director of Operations

National Sheriffs’ Association
20

COPS Office/BJA STAFF

Nazmia E. Alqadi

Program Analyst

Office of Community Oriented 

Policing Services

Barry Bratburd

Senior Policy Analyst

Office of Community Oriented 

Policing Services

Steven M. Edwards, Ph.D.

Senior Policy Advisor

Bureau of Justice Assistance

Mora L. Fiedler

Senior Social Science Analyst

Office of Community Oriented 

Policing Services

Deborah Meader

Policy Advisor

Bureau of Justice Assistance
21

Appendix C: Remarks from the U.S. Attorney General 

FOR IMMEDIATE RELEASE AG

Thursday, January 26, 2012 202.514.2007

www.justice.gov TTY 866.544.5309

Remarks as prepared for delivery by U.S. Attorney General Eric Holder 

at the national Officer Safety and Wellness Group Meeting

WASHINGTON, D.C.

Thank you, Barney [Melekian], for your kind words and, of course, for all that you and your colleagues have done 

in the COPS Office, and in conjunction with the Bureau of Justice Assistance, to help lead this working group, 

and to bring us together this morning.

I’d also like to thank [the] Pew [Conference Center] for hosting today’s important session, and providing 

a forum for discussion on some of the most critical—and most urgent—challenges facing America’s law 

enforcement community. This marks the third time that this extraordinary group of leaders, researchers, front-line 

practitioners, and federal partners has come together to exchange insights, to share expertise, and to strengthen 

the essential work that has become not just our shared priority but also our common cause.

I am honored to be included in this conversation once again, and privileged to join so many friends and 

colleagues in addressing—and advancing—the 16 priorities that have been identified for this working group, 

particularly reducing the rise in gunfire-related injuries and deaths and countering premeditated and unprovoked 

ambush situations.

I know you have a busy afternoon ahead of you, so I’ll keep my comments brief. But I would be remiss if I didn’t 

acknowledge—and thank you for—the contributions that you have already made. Know that your time, energy, 

and efforts are appreciated—and that I’m counting on all of you to keep up the great work.

Especially in this time of economic challenges, when jurisdictions across the country have been called upon 

to confront growing demands with increasingly limited budgets, this group has an indispensible role to play. 

By bringing key leaders and innovators together, you help to shine a light on the most pressing threats our law 

enforcement officers face. By exploring innovative new strategies for combating these threats, you help agencies 

and departments across the country make the most of precious resources. And by advocating for new training 

opportunities, pushing for improved information-sharing capabilities, and highlighting best practices, you help 

extend the reach of these efforts so that every police officer, every sheriff’s deputy, and every federal agent can 

do their job more safely and more effectively.

As we gather this morning, thanks to the committed work of public safety professionals across the country, 

national violent crime trends are heading in the right direction. Countless lives have been improved and 

saved. And so many jurisdictions—from inner cities, to rural areas and tribal communitieshave begun to make 

important, and long overdue, strides.

We can all take pride in this. But none of us can afford to be satisfied, and this is no time to become complacent.
22

The unfortunate reality is that—despite measured improvements in the overall crime rate—as you’ve already 

discussed today, incidents of violence against law enforcement officers are approaching the highest levels we’ve 

seen in nearly two decades. Last year, according to statistics maintained by the National Law Enforcement 

Officers Memorial Fund, a total of 177 federal, state, and local law enforcement officers lost their lives in the line 

of duty—a 16% increase over 2010. Since the first of January, an additional 12 officers have been killed.

As you know better than anyone, this represents a devastating and unacceptable trend—and a cause that 

demands our best and most innovative efforts. 

That’s what this working group is all about. Together you have not only tremendous expertise but also 

remarkable potential. And you are strengthening current efforts to turn back the rising tide of violence we’ve 

seen. You’re also helping the U.S. Department of Justice do everything in our power—and use every tool at our 

disposal—to protect those who are on the front lines, keeping our nation safe. The department’s latest efforts 

are guided by your leadership, bolstered by cutting-edge research by the National Institute of Justice, and 

backed up by critical new programs and partnerships like those administered by Director [Denise] O’Donnell 

and her colleagues in the Bureau of Justice Assistance. These range from the Officer Safety and Smart Policing 

Initiatives, to our Bulletproof Vest Partnership—which we estimate helped save the lives of at least 16 public 

safety officers last year and one since the beginning of 2012.

But all of this is only the beginning.

The department is also building on current efforts to provide the communications tools and platforms that allow 

public safety professionals to share information more quickly—and to more effectively identify and combat 

threats. And, as we move forward, we’ll continue working to reinforce the core partnerships upon which these, 

and so many other, important platforms and programs depend.

This means collaborating with state, local, and tribal authorities—not to mention key federal partners, private 

sector stakeholders, and cabinet-level agencies—to ensure that this vital work remains a top priority. It means 

strengthening relationships between front-line practitioners and the U.S. Attorney community—which is why, last 

fall, I instructed all 94 U.S. Attorneys’ Offices to meet with local law enforcement officials and work together in 

identifying key concerns, assessing available resources, and implementing effective solutions. To date, nearly all 

of these meetings have taken place, allowing us to compile critical information that has given us a clearer look 

at each community’s most pressing needs. With this knowledge base, we’re working to allocate resources more 

effectively and identify the solutions necessary to keep our law enforcement partners safe.

And it means working with key congressional leaders to secure financial support for flagship programs, like 

Byrne-JAG, and to maintain critical funding streams available through COPS Office grants, which help agencies 

and departments across the country close budgetary gaps and gain access to the valuable resources they need.

Of course, in the face of once-in-a-generation economic challenges, including the sharp cuts that Congress has 

imposed on these and other programs at the federal level, we also recognize that our ability to expand on the 

progress we’ve made will depend on more than just moving money out the door.

That’s why the department has also led the development of innovative training initiatives, such as VALOR, 

which I know you’ll be discussing this afternoon, to help provide law enforcement leaders with the information, 

analysis, and cutting-edge tools they need to respond to a range of threats, including ambush-style assaults.

I am proud to report that, to date, more than 1,700 law enforcement professionals have received VALOR training, 

in 10 regional sessions across the country. We’ve heard from sheriffs and police chiefs that this curriculum 

has been successfully put to use in the field. And some officers have described it as a “wake-up call,” both 

“professional and relevant,” and even “the best training [they] have ever...had the opportunity to experience.” 

That’s why—along with VALOR’s Officer Safety Toolkit, of which 8,000 have been given out to the field, and its 

website, which has registered more than 1.7 million hits—we plan to keep promoting it, refining it, and expanding 

its availability.
23

At the same time, we’re also taking significant steps to enhance our understanding of key factors that contribute 

to officer wellness, and I am proud to note that the National Institute of Justice has just released two new studies 

that take a closer look at a few of these factors.

One study, conducted in partnership with the Police Foundation, examined shift lengths in Detroit, Michigan, 

and Arlington, Texas. It found that 10-hour shifts offer several benefits over 8- or 12-hour shifts—including less 

overtime, higher quality of work life, improved morale, and potential cost savings—without adversely affecting 

performance. The second study, conducted by Brigham and Women’s Hospital, gathered data on sleep 

disorders and officer performance and found that some 40% of police officers screened positive for some form 

of sleep disorder—at least double the rate that’s been observed in the general population. It turns out that these 

sleep-deprived officers had a higher risk of falling asleep while driving, committing errors or safety violations, and 

experiencing uncontrolled anger at a suspect.

As we move forward, I’m confident that these and other important findings will enhance our ability to target areas 

of concern, evaluate officer wellness issues as they arise, and explore strategies for taking action. But the tragic 

reality is that no degree of understanding or amount of training—no matter how effective—can prevent some 

violent encounters from turning deadly. Because of this, the department also has made significant investments 

to provide support for the families of law enforcement officers in times of tragedy.

Not including those that resulted from 9/11, last year marked the second highest number of death and disability 

claims received by the Public Safety Officers’ Benefits Program since 1979. And I believe we can all be proud of 

the assistance that the PSOB has provided to so many families in moments of need.

This morning, as we reflect on these achievements—and renew our focus on the 16 core priorities that define 

the mission entrusted to this working group—it is already clear that what you’ve helped to accomplish in the 

face of unprecedented threats and economic challenges represents a historic step forward. As our nation’s 

attorney general, as a prosecutor and former judge, and as the brother of a retired police officer, I am extremely 

grateful for the contributions that you have made and the recommendations you will be developing, helping to 

implement, and building upon in the days ahead.

As we think about and plan for the future, it’s clear that a great deal of work remains before us—along with many 

more obstacles than we would like to see. Yet, as I look around this room today, I can’t help but feel optimistic 

about where your efforts will help to lead us from here.

Thank you, once again, for your time, energy, and excellent work. In this work, I am proud to count each of you 

as a colleague and partner. Together we can—we must—create a world in which we keep safe those who do so 

much to protect our nation. I am confident that we will.

###

IF YOU HAVE QUESTIONS, PLEASE CALL THE DEPARTMENT OF JUSTICE OFFICE OF PUBLIC AFFAIRS 

AT 202.514.2007.