PHILADELPHIA POLICE DEPARTMENT DIRECTIVE 10.7 Issued Date: 07-03-01 Effective Date: 07-03-01 Updated Date: SUBJECT: CRISIS RESPONSE / CRITICAL INCIDENT NEGOTIATIONS 1. PURPOSE A. To help identify a barricaded person, hostage taker, or Severely Mentally Disabled Person (SMDP) and to instruct police personnel in the proper tactics and procedures in order to remove such an individual and safeguard the personal well-being of all concerned. 2. POLICY A. Time is of no importance in removing barricaded persons, hostage takers, or SMDPs, unless there is immediate danger to life. B. Crisis Negotiation Teams of the Criminal Intelligence Unit are the Philadelphia Police Department s experts and thus responsible for the complicated task of negotiating with barricaded persons, hostage situations, and SMDPs. They will be available 24 hours a day. C. A patrol supervisor and a minimum of two (2) police officers will respond to all radio calls relating to a barricaded person, hostage taker, or SMDPs. D. The highest-ranking patrol supervisor/commander or Command Inspections Bureau (CIB) Commander will be the overall commander on a barricaded person/hostage scene. E. No aggressive action is to be taken by police personnel without the permission of the highest-ranking patrol supervisor/commander or CIB commander on the scene (overall commander), unless there is an immediate danger to life or exigent circumstances warrant such action. 1. All activities as well as the use of force will be under the control and direction of the overall commander. 2. Police personnel will deactivate their emergency equipment (light & sirens) upon arrival to any crisis response/critical incident. DIRECTIVE 10.7-1
F. When dealing with a barricaded person, all police personnel will exercise safe and reasonable means of control and containment and shall be guided by the training techniques in the Force Continuum listed below: 1. The mere presence of a police officer/officers 2. Verbal persuasion/warnings 3. Hands-on techniques/control holds 4. Non-lethal force (e. g., OC spray, batons/asps, Taser) 5. Deadly force G. The responsibility of conducting barricaded person/crisis negotiations will be a joint effort shared by specially trained personnel from OCI, the detective division of occurrence, and the patrol division under the direction of the overall commander. H. Police personnel on the scene will maintain firearms control and not discharge a firearm until directed to do so by the overall commander, unless there is an immediate danger of death or serious bodily injury. 3. DEFINITIONS A. Severely Mentally Disabled Person (SMDP): A person is severely mentally disabled when, as a result of mental illness, his/her capacity to exercise self-control, judgment, and discretion in the conduct of his/her affairs and social relations or to care for his/her own personal needs is so lessened that he/she poses a clear and present danger of harm to others or to himself/herself. B. Barricaded Person is usually, but not always, one or a combination of several types of individuals: 1. A person who has taken a position, inside, outside, or in a vehicle and has indicated by action or implication that he/she may have a weapon and refuses to cooperate with police commands or intends to harm himself/herself. 2. A severely mentally disabled person who has taken a position, inside/outside a dwelling or in a vehicle, and has indicated by action or implication that he/she intends to harm himself/herself or others. C. Hostage Taker is usually, but not always, one or a combination of two basic types of individuals: 1. A suspect who has taken a position at or near a crime scene with or without a weapon AND hostages, or a suspect who may be mobile, in which the hostage taker is not confined to a specific area, (i.e., in a vehicle). DIRECTIVE 10.7-2
2. A severely mentally disabled person who has taken a position, inside or outside, with hostages and has indicated by action or implication that he/she intends to harm himself/herself and/or the hostages. D. Psychosis: A mental disorder in which the personality of an individual is seriously disorganized and contact with reality is usually impaired. It may cause paranoia, visual or auditory hallucinations, (e. g., bugs crawling under the skin, hearing voices), or seizures. This disease may be caused by illness and/or the use of drugs or alcohol. E. Crisis Negotiators (Centralized and Decentralized) The Department s experts in the handling of barricaded persons/hostage negotiations, and in particular SMDPs. F. Centralized and Decentralized Concept refers to those Departmental units that are responsible for handling all barricade/hostage and SMDP situations. 1. Organized Crime/Intelligence (centralized) and crisis trained detective division personnel (decentralized). G. Outer Perimeter: Area designated by the overall commander for the safe evacuation of all spectators. This area is also selected to encompass a command post, communication center, staging area, crowd/traffic control, and staffing. H. Inner Perimeter: The actual hostage incident location designated by the overall commander. No one will be permitted to enter this area without permission of the overall commander or his designee, except the following personnel: 1. Members of the Special Weapons and Tactics Team (SWAT). 2. Centralized/Decentralized Hostage Negotiators. 3. Initial supervisors and police personnel on the scene. I. Zone of Protection: The secure distance to be maintained between responding police personnel and the inner perimeter of a crisis or critical incident. This distance will vary, depending on each situation and the range of any weapon that may be involved, (particularly a firearm). Every effort will be made to maintain this zone of protection should a barricaded person, hostage taker, or SMDP fail to remain stationary. 4. GENERAL PROCEDURES A. It is important for the first responding officers to use caution, evaluate the situation, attempt to de-escalate the situation through communication, contain the individual, wait for a back-up, and await the arrival of a patrol supervisor before taking any action, barring a threat to life. DIRECTIVE 10.7-3
B. Retreating or re-positioning is not a sign of weakness or cowardice by an officer; it is often a tactically superior police procedure rather than the immediate use of force. C. Crisis Negotiators (centralized and decentralized) will respond to all crisis or critical incidents. 1. The initial responsibility for negotiations rests with the Crisis Negotiators from the divisional detectives, until the arrival of the OCI Negotiators. 2. The primary responsibility for negotiations rests with the Crisis Negotiators from the OCI Unit. NOTE: Police personnel, vehicles, and equipment will be kept out of view of the barricaded person, hostage taker, or SMDP and in a secure area when possible. D. Two (2) crisis trained divisional detectives will always be used on the scene of all barricaded person, hostage taker or SMDP incidents. 1. If two (2) crisis trained divisional detectives are not available from the detective division of occurrence, Police Radio will contact additional trained detective divisions until two detectives are assembled. E. SWAT personnel are the only personnel authorized to utilize special weapons or equipment. F. The coordination of communications between specialized units, patrol personnel, and Crisis Negotiators that are on the scene will be the responsibility of the overall commander. 5. SPECIFIC PROCEDURES A. The first Police Officer on the scene will: 1. Evaluate the situation and ascertain if the incident is actually a barricaded person, hostage taker, or SMDP. 2. Immediately notify Police Radio with conditions and request a supervisor and additional personnel if necessary at the scene. 3. Determine whether the incident is taking place inside or outside. 4. Act as the communications car and will record the arrival of all personnel, vehicles, and special apparatus as well as all pertinent information on a Crime Scene Information Log (75-616). DIRECTIVE 10.7-4
5. Take defensive measures and attempt to maintain an appropriate zone of protection. 6. Avoid placing themselves in a position that requires taking unnecessary or overly aggressive actions. 7. Secure, isolate, and contain the area/building where the barricaded person/hostage taker or SMDP is located. 8. Advise Police Radio of the safest route to be taken by other police vehicles and request the necessary back up needed to secure and contain the person. 9. Inform Police Radio of the designated staging area for responding police personnel. 10. Maintain and record on the 75-616 all available information to include: a. All information about the barricaded person, hostage taker, SMDP. b. Any weapons (i. e., firearms, how many, type, caliber, amount of ammunition, knives, or explosives). NOTE: Regardless of any weapons surrendered by the barricaded person, hostage taker, or SMDP, the assumption will be that additional weapons are in his/her possession. c. Hostage(s): how many, identity, and relationship to hostage taker if any. d. Names and phone numbers of friends and family members if possible. If any are present, detain for interview by supervisor, assigned investigator, and Crisis Negotiation personnel. e. The phone number if any, where the barricaded person, hostage taker, or SMDP is located. f. All information and its source received by police personnel will be noted on the 75-616 and made available to the overall commander, all supervisors, Crisis Negotiation personnel and the assigned investigator. 11. The Crime Scene Information Log will be given to the assigned detective along with a copy of the Complaint or Incident Report (75-48), upon resolution of the incident. B. The first supervisor on the scene in addition to utilizing the Lieutenant s and Sergeants Emergency Check List will: 1. Immediately respond to all barricaded person, hostage taker, and SMDP incidents. DIRECTIVE 10.7-5
2. Review the circumstances with the first officers on the scene or the complainant initiating the call to confirm the type of incident and decide the appropriate back up necessary to secure, isolate, and contain the area, building, and person. 3. Temporarily assume command of the situation until the arrival of higher ranking police personnel. Ensure defensive measures are taken, a zone of protection has been established and all police personnel on the scene maintain firearms control. 4. Ensure a staging area has been designated for responding police personnel. 5. Relay all information concerning the incident to the overall commander and Crisis Negotiation Team member(s). 6. Designate the first patrol car on the scene as the communications car (to be located at a safe, but accessible location) and inform Police Radio of the exact location of this vehicle. Instruct this officer to chronologically log all actions taken or information received by any personnel on the scene, using the 75-616. 7. Establish an outer perimeter, out of sight of the incident and deploy personnel to contain crowds, divert traffic, and to prevent the escape of the barricaded person, hostage taker, or SMDP. 8. Advise Police Radio of the conditions and request the notification of the Deputy Commissioner, Field Operations or highest-ranking CIB commander, the Crisis Negotiators, divisional detectives, SWAT, and if necessary, a member from the Mental Health Delegate s office. C. Police Radio will: 1. Dispatch a patrol supervisor and a minimum of two officers to the scene of any barricaded person, hostage taker, or SMDP incident, regardless of the source. 2. When the incident is confirmed by a supervisor, notify the following, who will respond immediately: a. Highest ranking patrol supervisor/commander or CIB Commander (overall Commander) b. Criminal Intelligence Crisis Negotiations Team c. Commanding officer, district of occurrence d. SWAT Unit e. Detective Division of occurrence f. Fire Rescue EMT g. Public Affairs Unit (standby) h. Crime Scene Unit (standby) DIRECTIVE 10.7-6
i. Audio-Visual Unit (standby) j. Mobile Communications Unit (standby) k. Aviation Unit (standby) l. Mental Health Delegate (standby) 3. Ascertain the phone number of the subject, if available, and relay it to the overall commander and Crisis Negotiation Team via telephone, if possible. 4. Make any additional notifications as requested by the overall commander. D. The highest ranking patrol supervisor, commander or CIB commander, will upon arrival, assume command of the operation from the on-scene supervisor. The overall commander in addition to utilizing the Commander s Emergency Check List will: 1. Ensure that uniform and/or detective personnel have been assigned for any necessary evacuation and provide security for the area. 2. Gather all pertinent information from the patrol supervisor and attempt to obtain floor plans (if possible) of the building being occupied by any barricaded persons or hostage takers. 3. Ensure that an outer perimeter has been established out of sight of the barricaded person/hostage taker. 4. Decide the method of operation and the need for additional equipment/personnel, professional help, or family members. 5. Decide whether to utilize special police equipment or contact outside agencies (water, gas, or electric) to interrupt services. (Telephone service should not be interrupted). 6. Along with the SWAT Unit commander, be responsible for the tactical resolution and or hostage rescue. 7. Ensure that Fire Department equipment is on the scene prior to use of smoke, gas canisters, or diversionary devices. 8. Ensure that an inner perimeter has been established and only members of the SWAT Unit, Crisis Negotiation Team(s) and necessary equipment and personnel are within this area. 9. Ensure that specific individuals have been assigned for the following: a. Security for the inner/outer perimeters of the barricaded area, including the building occupied by the hostage taker. DIRECTIVE 10.7-7
b. Communications between the scene, Police Radio, and the Mobile Communications Unit, if needed. c. A liaison with other police units, Fire Department, other City departments, and utility companies. d. Collection of the 75-616. 10. Return any unnecessary personnel and equipment to routine patrol. 11. Ensure Internal Affairs is notified of any injuries sustained by: hostages, hostage takers, or SMDPs, which were the result of police actions. E. The Crisis Negotiation Team(s) will: 1. Report directly to the highest-ranking patrol supervisor/overall commander. 2. Upon arrival take control and monitor all verbal contacts with the barricaded person, hostage taker, or SMDP. F. The SWAT Unit Supervisor will: 1. Report to the overall commander at the scene and advise him/her of the capabilities and limitations of available special weapons and equipment. a. Relieve non-tactical personnel from the inner perimeter as soon as possible. 2. Ascertain the physical layout of the building and area to determine how to resolve the incident. 3. Be responsible for the tactical resolution and/or hostage rescue operation. G. The Detective Supervisor will: 1. Report to the overall commander and provide all initial and supplemental information gathered by the assigned investigators. 2. Assign detective personnel to help in establishing the identity of the subject and hostages, determine if the subject has any registered weapons, and acquire any photographs/record checks of the subject. 3. Ensure there is an in-depth interview of the subject s family and friends and determine actions of subject immediately prior to the present situation. 4. Work up a background of the subject to include characteristics and tendencies, when possible. DIRECTIVE 10.7-8
5. Consult with Crime Scene Unit personnel in processing the scene. 6. Ensure the assigned divisional detective submits the preparation of a concise and thorough report of the entire incident, regardless of the level of response required at the scene. This report will include the 75-616 and a background of the subject. H. The Crime Scene Unit will: 1. Respond to the scene upon request of the ranking detective supervisor on duty at the incident. 2. Prepare a sketch of the physical layout of the building/area inside and outside, if one is not available. As much information as possible will be included on the sketch to help resolve the situation e. g., (doors, windows, stairwells, skylights, entrances, and exits). I. The Audio-Visual Unit will: 1. Respond to the scene on orders of the overall commander. 2. Be responsible for making a videotape record of the incident as directed by the overall commander to be used as possible training material at a later date. J. Police Public Affairs Unit will: 1. Respond to the scene of barricaded person, hostage taker, or SMDP situations when requested by the overall commander. 2. Act as a liaison between the Police Department and the news media. NOTE: When Public Affairs is not on the scene, the highest ranking patrol supervisor will act as the liaison. K. The Aviation Unit will: 1. Respond to the scene on orders of the Overall Commander. 2. Be used for surveillance and reconnaissance during any founded crisis response/critical incident. 3. Transmit all pertinent information directly to the overall commander. 6. CRISIS NEGOTIATION PROGRAM COORDINATOR A. The Commanding Officer, OCI, is the appointed Negotiation Program Coordinator of the Police Department and will: DIRECTIVE 10.7-9
1. Administer all aspects of the Crisis Negotiation Program, including training. 2. Define responsibilities of the individual team members. RELATED PROCEDURES: Directive 4.1, Responsibilities at Crime Scenes Directive 4.6, Fires, Disasters, Catastrophes and Other Emergencies Involving Joint Action of Service Dept s Directive 4.13, Prisoners in Hospitals Directive 5.24, Crime Scene Unit Directive 10.1, Use of Force Involving the Discharge of Firearms Directive 10.2, Use of Moderate/Limited Force Directive 10.9, Severely Mentally Disabled Persons BY COMMAND OF THE POLICE COMMISSIONER DIRECTIVE 10.7-10
PHILADELPHIA POLICE DEPARTMENT DIRECTIVE 10.7 APPENDIX A Issued Date: 06-10-09 Effective Date: 06-10-09 Updated Date: SUBJECT: IMMEDIATE ACTION / RAPID RESPONSE TO ACTIVE SHOOTER 1. POLICY A. It is the policy of the Philadelphia Police Department, based on training, to allow initial responding officers the authority and responsibility to take immediate action to contain and if necessary, neutralize active shooter incidents. Because of the urgency of an active shooter situation, the first responding officer must assume the responsibilities of the scene until relieved by someone of higher authority. A Special Weapons And Tactics (SWAT) supervisor after being briefed will, take over Tactical Command. 2. DEFINITIONS: A. Active Shooter: An active shooter situation is one in which an armed person has used deadly physical force on other persons and continues to do so while having unrestricted access to additional victims. B. Contact Team: An initial team of uniformed officers, working together, that moves through a building for the sole mission of identifying and neutralizing the active shooter(s). C. Rescue Team: A second team of uniformed officers, working together, that moves through a building to locate and rescue victims. 3. PROCEDURES A. The first officer(s) on the scene will: REDACTED - LAW ENFORCEMENT SENSITIVE DIRECTIVE 10.7-1 APPENDIX A
2. Make the decision to rapidly deploy (18 Ps. C.S. Section 508 IDOL Immediate Defense of Life); and establish and brief a Contact Team and a Rescue Team. a. There must be at least one (1) sworn member remaining outside of the incident location to control the scene and keep Police Radio informed. REDACTED - LAW ENFORCEMENT SENSITIVE b. The Contact Team will: 1. Make contact with the suspect(s). 2. Stop deadly behavior. 3. Limit suspect(s) movements. 4. Prevent escape. 5. Relay information to the Command Post. 6. Notify police radio of the location of any victim(s) they discover. c. After the suspect(s) have been controlled or it has been determined that they are no longer an immediate threat, the Contact Team will secure the area so the Medical Support can be provided to the injured. REDACTED - LAW ENFORCEMENT SENSITIVE 4. Rescue Team mission is to rescue and/or evacuate victims to a safe area by: REDACTED - LAW ENFORCEMENT SENSITIVE b. Communicate to the Contact Team before entry and update the Command Post c. Strong Communication is necessary between the Contact Team, Rescue Team, Incident Commander and Supervisor. DIRECTIVE 10.7-2 APPENDIX A
REDACTED - LAW ENFORCEMENT SENSITIVE NOTE: The shooter or conspirators may be among the victims. The Rescue Team will remember all safe practices when encountering any victims at the scene. If possible, the victims will be patted down for weapons and officer safety. B. Responding Police Personnel should use extreme caution and be aware of primary and possibly secondary explosive devices intended to injure first responders as they arrive to an active shooter incident. C. Establish Incident Command 1. The first officer on the scene will assume the responsibilities of the scene until relieved by a person of higher authority. 2. The Incident Commander, regardless of rank, shall: a. Assess and verify conditions and keep Police Radio informed. b. Establish a communications vehicle and command post. c. Notify Police Radio of the safest ingress / egress routes and designate a radio officer. d. Request necessary resources (i.e. SWAT, Bomb Squad, Aviation, Detectives, Philadelphia Fire Department and Fire Medical Units) through Police Radio and give a staging location. e. Gather intelligence from persons on the scene. f. Establish inner and outer perimeters. g. Determine access points. h. Attempt to obtain blue prints. i. Ensure all responding members are wearing body armor. j. Evacuate, secure and contain the incident site. k. Ensure interviews with the evacuated people are conducted in an attempt to gain information about the suspect(s), injured victims and trapped people. DIRECTIVE 10.7-3 APPENDIX A
l. Stabilize and coordinate the crime scene with investigative supervisor. m. Ensure constant contact and coordination with the Contact team, Rescue Team and SWAT. n. Not declare the scene under control until a complete search of the building, including roof or substructure has been completed by the SWAT Unit and is declared safe. D. Change in Incident Commander: 1. Command personnel in route to the incident will monitor Police Radio to gain information, but shall not obstruct ongoing intervention. 2. Command personnel must be on scene and fully briefed before assuming Incident Command. 3. SWAT supervisor will assume Tactical Command upon arrival. 4. Police Radio will be immediately notified of a change in Incident Commander. BY COMMAND OF THE POLICE COMMISSIONER DIRECTIVE 10.7-4 APPENDIX A