Professional Documents
Culture Documents
Human Sex
Trafficking
March 2011
Volume 80
Number 3
United States
Department of Justice
Federal Bureau of Investigation
Washington, DC 20535-0001
The attorney general has determined Human Sex Trafficking Human sex trafficking is a
that the publication of this periodical
is necessary in the transaction of the
public business required by law. Use
By Amanda Walker-Rodriguez
and Rodney Hill
1 serious problem for every
level of law enforcement.
of funds for printing this periodical has
been approved by the director of the
Office of Management and Budget.
Editor
John E. Ott
Associate Editors Departments
David W. MacWha
Stephanie Mitesser
Art Director
Stephanie L. Lowe
10 Focus on Supervision 20 Police Practice
The Two Roles of Supervision Decreasing Urban Crime
The Training Division’s in Performance Counseling
Outreach and Communications Unit
produces this publication with 23 Bulletin Honors
assistance from the division’s 16 Perspective Essex County Police Academy
National Academy Unit.
Issues are available online at Principles of Effective Law Law Enforcement Officer
http://www.fbi.gov. Enforcement Leadership Memorial
E-mail Address
leb@fbiacademy.edu 19 Leadership Spotlight 24 Bulletin Report
Cover Photo Leadership Etiquette Roadside Visibility Issues
© Thinkstock.com and Common Sense
Send article submissions to Editor,
FBI Law Enforcement Bulletin,
FBI Academy,
Quantico, VA 22135.
March 2011 / 1
the pimp traffics young women Unfortunately, however, sex from families who have aban-
(and sometimes men) complete- trafficking also occurs domes- doned them. Often, they become
ly against their will by force or tically.4 The United States not involved in prostitution to sup-
threat of force; this is human only faces an influx of inter- port themselves financially or
sex trafficking. national victims but also has to get the things they feel they
its own homegrown problem need or want (like drugs).
The Scope of interstate sex trafficking of Other young people are re-
Not only is human sex traf- minors.5 cruited into prostitution through
ficking slavery but it is big busi- Although comprehensive forced abduction, pressure from
ness. It is the fastest-growing research to document the parents, or through deceptive
business of organized crime and number of children engaged in agreements between parents and
the third-largest criminal enter- prostitution in the United States traffickers. Once these children
prise in the world.2 The majority is lacking, an estimated 293,000 become involved in prostitution,
of sex trafficking is internation- American youths currently are they often are forced to travel
al, with victims taken from such at risk of becoming victims far from their homes and, as a
places as South and Southeast of commercial sexual exploi- result, are isolated from their
Asia, the former Soviet Union, tation.6 The majority of these friends and family. Few children
Central and South America, and victims are runaway or thrown- in this situation can develop
other less developed areas and away youths who live on the new relationships with peers
moved to more developed ones, streets and become victims of or adults other than the person
including Asia, the Middle East, prostitution.7 These children victimizing them. The lifestyle
Western Europe, and North generally come from homes of such youths revolves around
America.3 where they have been abused or violence, forced drug use, and
constant threats.8
Among children and teens
living on the streets in the Unit-
ed States, involvement in com-
mercial sex activity is a problem
of epidemic proportion. Many
girls living on the street engage
in formal prostitution, and some
become entangled in nationwide
organized crime networks where
they are trafficked nationally.
Criminal networks transport
these children around the United
States by a variety of means—
cars, buses, vans, trucks, or
Ms. Walker-Rodriquez is an Mr. Hill, a retired police lieutenant,
assistant state’s attorney in is an assistant state’s attorney in planes—and often provide them
Baltimore County and a current Baltimore County and a current counterfeit identification to
member of the Maryland Human member of the Maryland Human use in the event of arrest. The
Trafficking Task Force. Trafficking Task Force.
average age at which girls first
“
rorized, and raped repeatedly.10 control. One victim, a runaway
These continual abuses make from Baltimore County, Mary-
it easier for the traffickers to land, was gang raped by a group
control their victims. The cap-
The United States
of men associated with the traf-
tives are so afraid and intimi- not only faces an ficker, who subsequently staged
dated that they rarely speak out influx of international a “rescue.” He then demanded
against their traffickers, even victims but also has that she repay him by working
when faced with an opportu- its own homegrown for him as one of his prostitutes.
nity to escape. problem of interstate In many cases, however, the
Generally, the traffickers sex trafficking of victims simply are beaten until
are very organized. Many have minors. they submit to the trafficker’s
a hierarchy system similar to demands.
”
that of other criminal organi- In some situations, the
zations. Traffickers who have youths have become addicted
more than one victim often to drugs. The traffickers simply
have a “bottom,” who sits atop Traffickers use force, drugs, can use their ability to supply
the hierarchy of prostitutes. emotional tactics, and financial them with drugs as a means of
The bottom, a victim herself, methods to control their vic- control.
has been with the trafficker tims. They have an especially Traffickers often take their
the longest and has earned easy time establishing a strong victims’ identity forms, includ-
his trust. Bottoms collect the bond with young girls. These ing birth certificates, passports,
money from the other girls, perpetrators may promise mar- and drivers’ licenses. In these
discipline them, seduce unwit- riage and a lifestyle the youths cases, even if youths do leave
ting youths into trafficking, and often did not have in their previ- they would have no ability to
handle the day-to-day business ous familial relationships. They support themselves and often
for the trafficker. claim they “love” and “need” will return to the trafficker.
March 2011 / 3
These abusive methods of within the State Department to Exploitation and Obscenity
control impact the victims both specifically address human traf- Section and the National Center
physically and mentally. Similar ficking and exploitation on all for Missing and Exploited
to cases involving Stockholm levels and to take legal action Children, launched the Inno-
Syndrome, these victims, who against perpetrators.13 Addition- cence Lost National Initiative.
have been abused over an ex- ally, this act was designed to The agencies’ combined efforts
tended period of time, begin to enforce all laws within the 13th address the growing problem
feel an attachment to the perpe- Amendment to the U.S. Consti- of domestic sex trafficking of
trator.11 This paradoxical psy- tution that apply.14 children in the United States. To
chological phenomenon makes U.S. Immigration and date, these groups have worked
it difficult for law enforcement Customs Enforcement (ICE) successfully to rescue nearly
to breach the bond of control, is one of the lead federal agen- 900 children. Investigations
albeit abusive, the trafficker cies charged with enforcing successfully have led to the con-
holds over the victim. the TVPA. Human trafficking viction of more than 500 pimps,
madams, and their associates
NATIONAL PROBLEM who exploit children through
WITH LOCAL TIES prostitution. These convic-
tions have resulted in lengthy
The Federal Level sentences, including multiple
In 2000, Congress passed 25-year-to-life sentences and
the Trafficking Victims Protec- the seizure of real property,
tion Act (TVPA), which created vehicles, and monetary assets.15
the first comprehensive federal Both ICE and the FBI, along
law to address trafficking, with with other local, state, and
a significant focus on the in- federal law enforcement agen-
ternational dimension of the © Thinkstock.com cies and national victim-based
problem. The law provides a advocacy groups in joint task
three-pronged approach: pre- forces, have combined resourc-
vention through public aware- es and expertise on the issue.
ness programs overseas and a represents significant risks to Today, the FBI participates in
State Department-led monitor- homeland security. Would-be approximately 30 law enforce-
ing and sanctions program; terrorists and criminals often ment task forces and about 42
protection through a new T Visa can access the same routes and Bureau of Justice Assistance
and services for foreign na- use the same methods as hu- (BJA)-sponsored task forces
tional victims; and prosecution man traffickers. ICE’s Human around the nation.16
through new federal crimes and Smuggling and Trafficking Unit In July 2004, the Human
severe penalties.12 works to identify criminals and Smuggling Trafficking Center
As a result of the passing of organizations involved in these (HSTC) was created. The HSTC
the TVPA, the Office to Monitor illicit activities. serves as a fusion center for in-
and Combat Trafficking in Per- The FBI also enforces formation on human smuggling
sons was established in October the TVPA. In June 2003, the and trafficking, bringing togeth-
2001. This enabling legislation FBI, in conjunction with the er analysts, officers, and inves-
led to the creation of a bureau Department of Justice Child tigators from such agencies as
“
law enforcement to assist in
Metropolitan Police Depart- federal human trafficking
ment joined with a variety investigations, and provid-
of nongovernment organiza- Local and ing training for law enforce-
tions and service provid- state criminal ment officers.
ers to combat the growing justice officials must
problem of human traffick- understand that these Anytown, USA
ing within Washington, D.C. cases are not isolated In December 2008, Corey
• In January 2005, the Mas- incidents that occur Davis, the ringleader of a sex-
sachusetts Human Traf- infrequently. trafficking ring that spanned at
ficking Task Force was least three states, was sentenced
”
formed, with the Boston in federal court in Bridgeport,
Police Department serving Connecticut, on federal civil
as the lead law enforcement rights charges for organizing
entity. It uses a two-pronged enforcement and victim and leading the sex-trafficking
approach, addressing in- rescue efforts on the Inter- operation that exploited as
vestigations focusing on state 10 corridor from the many as 20 females, including
international victims and Texas border on the west to minors. Davis received a sen-
those focusing on the com- the Mississippi border on tence of 293 months in prison
mercial sexual exploitation the east. This corridor, the followed by a lifetime term of
of children. basic northern border of the supervised release. He pleaded
• The New Jersey Human hurricane-ravaged areas of guilty to multiple sex-traffick-
Trafficking Task Force at- Louisiana, long has served ing charges, including recruiting
tacks the problem by train- as a major avenue of il- a girl under the age of 18 to en-
ing law enforcement in legal immigration efforts. gage in prostitution. Davis ad-
the methods of identifying The I-10 corridor also is the mitted that he recruited a minor
victims and signs of traffick- main avenue for individuals to engage in prostitution; that
ing, coordinating statewide participating in human traf- he was the organizer of a sex-
efforts in the identification ficking to supply the labor trafficking venture; and that he
March 2011 / 5
used force, fraud, and coercion pictures are altered to give the slaves. These girls did not work
to compel the victim to commit impression of older girls en- for profit or a paycheck. They
commercial sex acts from which gaged in this activity freely and were captives to the traffick-
he obtained the proceeds. voluntarily. However, as pros- ers and keepers who controlled
According to the indict- ecutors, the authors both have their every move. The police
ment, Davis lured victims to encountered numerous cases found a squalid, land-based
his operation with promises of of suspected human trafficking equivalent of a 19th-century
modeling contracts and a glam- involving underage girls. slave ship. They encountered
orous lifestyle. He then forced The article “The Girls Next rancid, doorless bathrooms;
them into a grueling schedule of Door” describes a conventional bare, putrid mattresses; and a
dancing and performing at strip midcentury home in Plainfield, stash of penicillin, “morning
clubs in Connecticut, New York, New Jersey, that sat in a nice after’’ pills, and an antiulcer
and New Jersey. When the clubs middle-class neighborhood. medication that can induce
closed, Davis forced the victims Unbeknownst to the neighbors, abortion. The girls were pale,
to walk the streets until 4 or 5 © Thinkstock.com exhausted, and malnourished.19
a.m. propositioning customers. Human sex trafficking
The indictment also alleged that warning signs include, among
he beat many of the victims to other indicators, streetwalkers
force them to work for him and and strip clubs. However, a ju-
that he also used physical abuse risdiction’s lack of streetwalkers
as punishment for disobeying or strip clubs does not mean that
the stringent rules he imposed it is immune to the problem of
to isolate and control them.18 trafficking. Because human traf-
As this and other examples ficking involves big money, if
show, human trafficking cases money can be made, sex slaves
happen all over the United can be sold. Sex trafficking can
States. A few instances would happen anywhere, however
represent just the “tip of the unlikely a place. Investigators
iceberg” in a growing crimi- the house was part of a network should be attuned to reading the
nal enterprise. Local and state of stash houses in the New York signs of trafficking and looking
criminal justice officials must area where underage girls and closely for them.
understand that these cases are young women from dozens
not isolated incidents that occur of countries were trafficked INVESTIGATION
infrequently. They must remain and held captive. Acting on a OF HUMAN SEX
alert for signs of trafficking in tip, police raided the house in TRAFFICKING
their jurisdictions and aggres- February 2002, expecting to ICE aggressively targets the
sively follow through on the find an underground brothel. global criminal infrastructure,
smallest clue. Numerous Web Instead, they found four girls including the people, money,
sites openly (though they try to between the ages of 14 and 17, and materials that support hu-
mask their actions) advertise for all Mexican nationals without man trafficking networks. The
prostitution. Many of these sites documentation. agency strives to prevent human
involve young girls victimized However, they were not trafficking in the United States
by sex trafficking. Many of the prostitutes; they were sex by prosecuting the traffickers
“
end, the authors offer various
suggestions and indicators to clubs, and massage parlors.
help patrol officers identify Look to see if the girls ar-
victims of sex trafficking, as rive alone or with someone
Traffickers else. Girls being transported
well as tips for detectives who represent every
investigate these crimes. to these locations should
social, ethnic, and raise concerns of trafficking.
Patrol Officers racial group. • Upon an arrest, check cell
• Document suspicious calls phone records, motel re-
”
and complaints on a police ceipts, computer printouts
information report, even if of advertisements, and
the details seem trivial. tollbooth receipts. Look
• Be aware of trafficking for phone calls from the
• When encountering prosti- jailed prostitute to the
when responding to certain tutes and other victims of
call types, such as reports pimp. Check surveillance
trafficking, do not display cameras at motels and toll
of foot traffic in and out of judgment or talk down
a house. Consider situations facilities as evidence to in-
to them. Understand the dicate the trafficking of the
that seem similar to drug violent nature in how they
complaints. victim.
are forced into trafficking,
• Look closely at calls for which explains their lack • Obtain written statements
assaults, domestic situa- of cooperation. Speak with from the customers; get
tions, verbal disputes, or them in a location complete- them to work for you.
thefts. These could involve ly safe and away from other • Seek assistance from non-
a trafficking victim being people, including potential governmental organizations
abused and disciplined by a victims. involved in fighting sex
March 2011 / 7
trafficking. Many of these • Persons frequently moved aliens detained at different
entities have workers who by traffickers locations
will interview these victims • A living space with a large • Third party who insists on
on behalf of the police. number of occupants interpreting. Did the victim
• After executing a search • People lacking private sign a contract?
warrant, photograph ev- space, personal possessions,
erything. Remember that Brothel Indicators
or financial records
in court, a picture may be • Large amounts of cash and
worth a thousand words: • Someone with limited
condoms
nothing else can more knowledge about how to get
around in a community • Customer logbook or receipt
effectively describe a
book (“trick book”)
cramped living quarter a
“
victim is forced to reside in. • Sparse rooms
• Look for advertisements • Men come and go frequently
in local newspapers, spe-
cifically the sports sections, Today, the business CONCLUSION
that advertise massage of human sex This form of cruel modern-
parlors. These businesses trafficking is much day slavery occurs more often
should be checked out more organized than many people might think.
to ensure they are legiti- and violent. And, it is not just an interna-
mate and not fronts for tional or a national problem—
it also is a local one. It is big
”
trafficking.
business, and it involves a lot of
• Contact your local U.S.
perpetrators and victims.
Attorney’s Office, FBI field
Agencies at all levels must
office, or ICE for assis- Physical Indicators remain alert to this issue and
tance. Explore what federal
• Injuries from beatings or address it vigilantly. Even local
resources exist to help ad-
weapons officers must understand the
dress this problem.
• Signs of torture (e.g., ciga- problem and know how to rec-
Other Considerations rette burns) ognize it in their jurisdictions.
Patrol officers and investi- Coordinated and aggressive
• Brands or scarring, indicat- efforts from all law enforcement
gators can look for many other ing ownership
human trafficking indicators as organizations can put an end to
well.20 These certainly warrant • Signs of malnourishment these perpetrators’ operations
closer attention. and free the victims.
Financial/Legal Indicators
General Indicators Endnotes
• Someone else has posses- 1
http://www.routledgesociology.com/
• People who live on or near sion of an individual’s legal/ books/Human-Sex-Trafficking-
work premises travel documents isbn9780415576789 (accessed July
• Existing debt issues 19, 2010).
• Individuals with restricted 2
http://www.unodc.org/unodc/en/
or controlled communica- • One attorney claiming to human-trafficking/what-is-human-
tion and transportation represent multiple illegal trafficking.html (accessed July 19, 2010).
Clarification
Figure 4 - Untrained and Trained Responses
Recall Disbelief
Prepare Denial
March 2011 / 9
Focus on Supervision
March 2011 / 11
Skilled supervisors continuously scan the work en- Describe the Problem
vironment for examples of superior performance The goal of the first step—to describe the prob-
and quickly recognize officers for a job well-done. lem in specific, objective behavioral terms—argu-
This includes employees who maintain excellent ably is the most difficult and important aspect of
attendance, assist other officers, make valid ar- conducting a successful performance-counseling
rests, or simply follow the rules. session. At this point, supervisors should focus on
communicating the gap between what employees
CORRECTING POOR PERFORMANCE currently do and the organizational standard. In
Setting limits, holding officers accountable, other words, what are supervisors getting in terms
and confronting poor performance can prove diffi- of performance, and what do they need? It is im-
cult for many supervisors. Absent the proper skills portant that the description be as objective and
and training, most fall naturally into one of two unarguable as possible and free of bias, emotion,
categories: they either attempt or attribution.
to coerce employees into per-
forming appropriately or try to Express the Result
avoid problems altogether. In During this stage, the su-
the first instance, supervisors pervisor describes the impact
rely on their formal authority of the problem (i.e., the good
to compel acceptable perfor- business reasons for resolving
mance. While this approach the issue). Has the officer’s
often proves effective at pro- behavior created more work
ducing short-term results, it for other personnel? Has it
seldom motivates the type of resulted in citizen complaints?
long-term change necessary to Or, has the poor performance
correct chronic performance exposed the agency to li-
issues. In contrast, supervisors ability? Despite the issue, the
who employ the second strat- supervisor should be clear
© Thinkstock.com
egy tend to avoid problems about why the officer’s current
because they fear a messy confrontation and, in performance cannot continue. Without such rea-
so doing, allow the officer’s poor performance to sons, no basis exists for conducting a performance-
continue unabated, often with highly predictable counseling session. After all, simply disliking an
consequences.5 officer’s attitude or demeanor, when that conduct
Fortunately, a third alternative exists: hold- has no appreciable effect on the employee’s work
ing a formal counseling session in a positive, product, is insufficient grounds for a counseling
principled way that makes the supervisor’s needs session.
clear but respects the officer’s feelings and rights.
The following three-step formula—the DER Request a Change in Behavior
model—makes it possible for leaders to set limits, While supervisors often find it easy to identify
confront unacceptable behaviors, and hold officers what they do not like, many have difficulty describ-
accountable:6 ing the precise behaviors necessary to remedy the
• Describe the problem situation and satisfy the organizational standard.
A leader’s job is to ensure that officers perform
• Express the result their duties in accordance with organizational
• Request a change in behavior policy. This means that supervisors are interested
March 2011 / 13
inappropriate and why it needs to be addressed. Effective leaders also understand the impor-
More important, however, it can help gain the offi- tance of getting to the point of the meeting early
cers’ cooperation in solving the problem. Officers, in the conversation. For example, “Officer Smith,
like most people, tend to do better with the “what” there is a problem with your attendance, and we
if they understand the “why.” While this process is need to discuss it” or “Officer Donahue, you have
not very difficult for most supervisors, it is critical received three complaints for discourtesy in the
to the success of any meaningful outcome. last month, and we need to get this problem fixed”
can express the reason for the discussion in clear,
List the Consequences specific terms early in the encounter.
Regardless of the reasons for poor perfor- Throughout any performance discussion, su-
mance, the meeting should include a discussion of pervisors should avoid taking responsibility for
the logical consequences that will follow should the fixing the problem—emphasizing, instead, the
officers choose to continue in this manner.9 In no importance of choice and personal responsibility.
way should supervisors appear to threaten their of- While the supervisor can openly discuss options,
ficers, but they should highlight the responsibility for fixing the
the natural implications of any problem rests squarely with the
future conduct—either positive officers. After all, they choose
or negative—that will result. when they come to work or how
Ultimately, the officers will they treat the public, not their
decide whether to improve and supervisor. Therefore, the of-
will endure the consequences ficers must address the problem
of that decision; therefore, they and experience the natural con-
should understand, under no sequences of their decisions.11
uncertain terms, precisely what Because they understand the
is at stake. importance of reinforcement,
effective supervisors quickly
ENSURING SUCCESS reward any positive change in
To address performance in an officer’s behavior, however
the most productive way pos- © Thinkstock.com slight or seemingly insignifi-
sible, supervisors should re- cant. Unfortunately, many fail
main calm, polite, and professional. Performance- to celebrate the little things, opting instead to wait
counseling sessions are intended to correct per- for a “breakthrough”—a complete shift in the of-
formance problems, not to serve as a platform for ficer’s conduct—before offering reinforcement.
personal agendas or as a vehicle for expressing Because officers tend to repeat rewarded behav-
dislike of an officer. Effective supervisors do not iors, failing to provide the appropriate positive
take performance problems personally. They un- reinforcement early enough can frustrate progress
derstand that officers being counseled are not bad and reduce the prospect of long-term behavioral
people; they are good persons experiencing a per- change.12
formance problem. Thus, skilled supervisors keep Finally, supervisors often fail to reinforce
an open mind, treat all employees fairly, and show behaviors consistently and frequently enough to
officers the respect that they deserve.10 make any appreciable difference in an officer’s
”
remain the stalwart protectors
(New York, NY: Portfolio, 2009).
of society. At the same time, 10
For a list of appropriate be-
supervisors must intervene haviors, see Kerry Patterson, Joseph
quickly when problems arise. Grenny, Ron McMillian, and Al Swit-
They must hold officers accountable for their per- zler, Crucial Conversations: Tools For Talking When The Stakes
formance in positive, productive ways. To this end, Are11High (New York, NY: McGraw-Hill, 2002).
For a discussion on personal accountability, see Mark
formal counseling sessions can help supervisors Samuel, The Accountability Revolution: Achieve Breakthrough
deal with performance issues while respecting the Results IN HALF THE TIME! 2nd ed. (Tempe, AZ: Facts on
feelings and rights of their employees. Demand Press).
12
For a discussion on the importance of reinforcement and
Endnotes shaping, see Alan E. Kazdin, Behavior Modification in Applied
1 Settings, 6th ed. (Belmont, CA: Wadsworth/Thomas Learning,
For a discussion on law enforcement supervision, see Donald
2001).
J. Schroeder, Frank Lombardo, and Jerry Strollo, Management
and Supervision of Law Enforcement Personnel, 4th ed. (New
York, NY: Gould Publications, 2006).
2
For a complete discussion of behaviorism, see B.F. Skinner, Readers interested in discussing this topic further can
About Behaviorism (New York, NY: Vintage Books, 1976). contact the author at bdfitch@lasd.org.
3
For additional information, see http://psychology.about.com/
od/lindex/g/lawofeffect.htm (accessed on June 16, 2010). Dr. Fitch, a lieutenant with the Los Angeles, California,
4
For a discussion on the proper application of positive rein- Sheriff’s Department, holds faculty positions in the
forcement, see Aubrey C. Daniels, Other People’s Habits: How Psychology Department at California State University,
to Use Positive Reinforcement to Bring Out the Best in People Long Beach, and with the Organizational Leadership
Around You (Atlanta, GA: Performance Management Publica- Program at Woodbury University.
tions, 2007).
March 2011 / 15
Perspective
Principles of Effective
Law Enforcement Leadership
By Dan Willis
© Mark C. Ide
March 2011 / 17
for the purpose of our work and enable our subor- 8) Trust
dinates to define within themselves a basic under- Effective managers need to trust their em-
standing of the importance of what we do and how ployees. Initiative is crippled when they do not.
we have the potential to affect so many lives for the
And, without initiative, an organization becomes
good. Getting employees to understand that there stagnant and unproductive. Through delegation,
is no more noble work than protecting and serving follow-through, and setting reasonable and clear
the public well is vital for effective management. performance expectations, managers can mentor
and develop their employees while giving them
6) Mentoring the trust that everyone needs to feel. Managers
If they are not looking constantly for ways to must recognize that it is possible for an employee
mentor and develop their employee, managers are to perform a job differently or not as well as they
not truly leading. Managers do. Such performance is an
have a duty and responsibil- integral part of the learning
ity to pass on all that they and development process.
possibly can to those they
supervise. Effective leaders
know how much they are in
debt to so many people for
“ Effective managers
always look for ways to
The more an employee feels
trusted, the more they will
take the initiative and work
harder for their manager.
their own development, and
learn from others and
each has the moral duty to to actively train and Conclusion
teach and develop others in develop them to become Effective law enforce-
return. The more managers future leaders of the ment managers should be
can teach and mentor oth- organization. persistently looking within
ers, the more effective the themselves to honestly evalu-
organization will become.
The effective manager’s most
persistent endeavor is to find
” ate how they can work pro-
actively to develop each of
these principles of leadership.
ways to guide, develop, teach, train, and provide Effective managers always look for ways to learn
experience for those they supervise. from others and to actively train and develop
them to become future leaders of the organization.
7) Positive/Constructive Attitude Through the cultivation of an attitude of service,
Managers who genuinely portray a positive selflessness, giving, and devotion to our core pur-
and constructive attitude are like a magnet that pose as law enforcement officers, we as managers
draws others toward them. Always contagious, can learn how to become more influential with
a positive, optimistic attitude enables employees our employees and to guide them in providing
to look for the good and to try to be constructive the most effective and professional service to the
working to change things for the better. Effective public.
managers consistently should portray the attitude
of moving forward constructively, always looking Lieutenant Willis serves with the La Mesa, California,
for positive improvement and the willing coopera- Police Department.
tion of others.
March 2011 / 19
Police Practice
March 2011 / 21
Group A Offenses Comparison
Murder/Nonnegligent Manslaughter; Kidnapping/Abduction, Forcible Sex Offenses; Robbery/Aggravated Assault; Simple Assault/Intimidation; Arson;
Extortion/Blackmail; Burglary; Larceny; Motor Vehicle Theft; Counterfeiting/Forgery; Fraud; Embezzlement; Stolen Property; Destruction/Vandalism; Drug Narcotic
Offenses; Non-forcible Sex Offenses; Pornography; Gambling; Prostitution; Bribery; and Weapon Law Violations
8000
7000 7282 7417
6911 7098 7131
6000
Num ber of G roup A O fffenses
6291 6347
5853 5890
5000
5042
4000
3000
2000
1000
0
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009
personalities hosted summer events, which added prominently featured on the site. The organization
a greater attraction to the large crowds. Children celebrates 25 years of existence in 2010 and has
participated in bike rodeos and received compli- a strong, transparent, and accountable board of
mentary safety helmets to encourage safe outdoor volunteers representing businesses, community
physical activity. Several community groups and leaders, and government bodies.
organizations exist within Petersburg, including Technology advancements also have led to
Petersburg/Dinwiddie Crime Solvers, Summer the drop in crime. Improved training and the use
Youth Enrichment, and 22 Neighborhood Watch of more sophisticated computer systems to allow
groups. Community events include Police and for real-time processing of crime incidents had an
Community Together (PACT), National Night Out immediate impact. Officers have the capability to
Against Crime, and community focus groups. One use mobile data terminals in their vehicles to log
of the major goals of these community groups is to reports from the field, rather than traveling to and
get as many civilians as possible to participate in spending time at the station typing reports. This
anticrime efforts. has increased statistical accuracy and enhanced the
Community involvement also includes the submission of data to law enforcement regulating
anonymous tips system Crime Solvers. Peters- bodies.
burg Dinwiddie Crime Solvers, a nonprofit orga-
nization, allows citizens to report crimes or the Conclusion
whereabouts of fugitives. Its Web site, http://www. The combination of focused management and
pdcrimesolvers.org, has had a 67 percent increase encouragement to address problems while holding
in visitors because of the addition of fugitive officers accountable has made a profound differ-
photos in the winter of 2009. In some cases, fugi- ence in the prevention, response, and ownership of
tives have turned themselves in after becoming public safety in Petersburg, Virginia. By creating
Bulletin Honors
March 2011 / 23
Bulletin Report
to see and recognize emergency vehicles, including Valley Volunteer Firemen’s Association’s Emer-
using retroreflective material to outline an emer- gency Responder Safety Institute to create Re-
gency vehicle; placing these markings lower on the sponderSafety.com. This Web site contains the lat-
vehicles to take advantage of headlights from ap- est news and training on roadside safety, as well
proaching traffic; using fluorescent retroreflective as recent cases of on-duty responders injured or
material when responders want a high degree of killed by vehicles. The site aims to become a place
day- and nighttime visibility; and applying distinc- where transportation, public safety, and emergency
tive logos or emblems made with retroreflective personnel around the country can share lessons
material to improve emergency vehicle visibility learned, thus helping them to respond more safely
and recognition. and effectively to roadway incidents.
The U.S. Fire Administration and the Society The U.S. Fire Administration also worked with
of Automotive Engineers conducted a separate the International Association of Firefighters to de-
NIJ-funded study to examine warning lights. Re- velop “Improving Apparatus Response and Road-
searchers looked specifically at how the color and way Operations Safety for the Career Fire Service,”
intensity of warning lights affect driver vision and a separate Web-based training program. The two
emergency vehicle safety during the day and night. organizations are expanding this to cover all emer-
They examined whether the lights alerted driv- gency responders, including law enforcement.
ers to the presence and location of an emergency
vehicle as intended or whether they unnecessarily Conclusion
distracted drivers or hindered their ability to de- Roadside safety issues are complex. Using
tect emergency responders on foot. Based on the warning lights and retroreflective material to in-
findings from this study, researchers offered three crease an emergency vehicle’s visibility is just one
recommendations. important focus area. Setting up a proper safety
1. Consider different intensity levels of warning zone at the scene of an accident or other roadside
lights for day and night. hazard, as well as increasing the visibility of emer-
gency responders on foot, also is critical. Perhaps
2. Make more overall use of blue lights both day one of the most essential parts of the equation is
and night. the alertness of civilian drivers and their ability to
3. Use color to make a clear visual distinction recognize an emergency vehicle and take suitable
between parked emergency vehicles in two action.
different paths. The National Institute of Justice is continuing
to work with law enforcement, firefighters, and
The Tools other emergency responders, as well as the public,
NIJ also has supported developing Web-based to address these concerns and help improve safety
tools that will help improve the safety of law en- for everyone on the road. To read the complete
forcement officers, firefighters, and other emer- report (NCJ 229885), access the National Criminal
gency responders on the roadways. The U.S. Fire Justice Reference Service’s Web site, http://www.
Administration collaborated with the Cumberland ncjrs.gov.
March 2011 / 25
Legal Digest
© Mark C. Ide
© Thinkstock.com
”
process. Even the apparently
dead often are saved by swift
police response. A myriad Special Agent Pettry is a legal instructor at the FBI Academy.
of circumstances could fall
March 2011 / 27
unlawful, both state and federal the extent to which law enforce- in Brigham City was whether
courts consistently have held ment can act without a warrant “police may enter a home with-
that various situations exist that once the emergency is over— out a warrant when they have
because of their nature permit its language has been used by an objectively reasonable basis
a warrantless search.6 Included courts to clarify the circum- for believing that an occupant is
among the judicially recog- stances under which officers can seriously injured or imminently
nized exceptions to the Fourth make warrantless entries and threatened with such injury.”14
Amendment’s warrant require- conduct searches in emergency In this case, officers responded
ment is the exigent circumstanc- situations. in the early morning hours to a
es exception. The United States call regarding a loud party at a
“
Court of Appeals for the Sixth residence. Officers approached
Circuit in United States v. Wil- the residence after hearing
liams described this exception shouting from inside. As they
as including “situations where …officers have the approached the home, the offi-
real immediate and serious con- authority to make cers also observed two juveniles
sequences will certainly occur if warrantless entries drinking beer in the backyard.
a police officer postpones action into…areas protected by From their vantage point in the
to obtain a warrant.”7 Examples the Fourth Amendment backyard, the officers observed
of this exception are warrantless to resolve emergency an altercation taking place
entries onto private property situations provided they inside of the home through a
to fight fire and investigate its have an objectively screen door and windows. At
cause,8 to prevent the imminent reasonable basis to the time they looked into the
destruction of evidence,9 and do so. home, the officers observed
to engage in “hot pursuit” of a several adults attempting to
”
fleeing subject.10 restrain a juvenile.15 The young
In recognition of the need person managed to break free
for police officers to respond of the adults’ grasp and struck
appropriately to emergency In 2006, the Supreme Court one of them in the face with his
situations, the Supreme Court specifically addressed the emer- fist.16 The victim of the blow
noted in its decision in Mincey gency aid exception in Brigham proceeded to spit blood into a
v. Arizona that “the Fourth City v. Stuart.12 During the nearby sink as the other adults
Amendment does not bar police 2009-2010 term, the Supreme tried to restrain the juvenile
officers from making warrant- Court again addressed this ex- by “pressing him up against a
less entries and searches when ception in Michigan v. Fisher.13 refrigerator with such force that
they reasonably believe that a These decisions provide signifi- the refrigerator began moving
person within [a private resi- cant clarification of the legal ba- across the floor.”17 At this point,
dence] is in need of immediate sis upon which officers render- one of the responding officers
11
aid.” Although the holding in ing emergency aid to others can opened the screen door and an-
Mincey was limited to the ques- make warrantless entries into nounced the officers’ presence.
tion of whether there existed a homes and other areas protected Because of the chaos unfolding
“crime scene exception” to the by the Fourth Amendment. inside of the home, none of the
Fourth Amendment’s warrant The specific issue ad- occupants responded, and the
requirement—in other words, dressed by the Supreme Court officers entered the kitchen,
March 2011 / 29
emergency” confronting the of- enforcement officers, the Court “knock and announce” rule, the
ficers was the need to preserve further noted that “[t]he role of Court noted that the officer’s
evidence (the suspect’s blood a peace officer includes prevent- announcement of his presence
alcohol level). In finding that ing violence and restoring order, may have been the only op-
the officers’ actions violated the not simply rendering first aid to tion given the noise and chaos
Fourth Amendment, the Court casualties; an officer is not like within the home. Under these
noted that “[b]efore agents of a boxing (or hockey) referee, circumstances, once they had
the government may invade the poised to stop a bout only if it announced their presence, the
sanctity of the home, the burden becomes too one-sided.”31 officers were permitted to enter
is on the government to dem- the home as “it would serve no
onstrate exigent circumstances purpose to require them to stand
“
that overcome the presumption dumbly at the door awaiting
of unreasonableness that at- a response while those within
taches to all warrantless home Included among the brawled on, oblivious to their
entries.”28 presence.”33
What made Brigham City
judicially recognized In its 2009 term, the Su-
different, according to the exceptions to the Fourth preme Court decided Fisher,
Court, was the fact that “the Amendment’s warrant which, like Brigham City,
officers were confronted with requirement is the involved officers’ entry into a
ongoing violence within the exigent circumstances residence without a warrant to
29
home.” It was this key dis- exception. respond to an emergency situ-
tinction between the cases that ation. In Fisher, local police
”
served to make the officers’ responded to a disturbance
actions reasonable. Rather than call and, as they approached
simply trying to procure evi- the area, were met by a couple
dence for eventual use at trial, In addition to finding that who directed them to a resi-
the officers in Brigham City the officers’ entry into the home dence where a man was “going
faced a situation that presented was reasonable, the Court also crazy.”34 Upon their arrival at
a very real risk of serious injury found their manner of entry the home, the officers found a
to those involved. As the Court appropriate under the circum- pickup truck in the driveway
noted, “the officers had an stances. After witnessing the with front-end damage and
objectively reasonable basis for assault, one of the officers damaged fence posts along the
believing both that the injured opened the screen door to the side of the property.35 The of-
adult might need help and that home and yelled “police.”32 ficers further noted that several
the violence in the kitchen was When there was no response, of the home’s windows were
just the beginning. Nothing in the officer then stepped into the broken and that there was blood
the Fourth Amendment required kitchen and again announced on the hood of the pickup, the
them to wait until another his presence. Only then did clothes inside of it, and one
blow rendered someone ‘un- the melee begin to subside. In of the doors to the house.36
conscious’ or ‘semiconscious’ reaching its determination that Through a window, the officers
or worse before entering.”30 In the officers’ entry into the home observed Fisher screaming and
language that plainly describes was reasonable and did not throwing things inside of the
the realities confronted by law violate the Fourth Amendment’s house.37
March 2011 / 31
3
exigent circumstance excep- U.S. Const. amend. IV. Brigham City v. Stuart, 57 P.3d 1111 (Utah
4
tion to the Fourth Amend- 389 U.S. 347, 357 (1967). App. 2002).
5 21
Payton v. New York, 445 U.S. 573, Id. at 403.
ment’s warrant requirement, 586 (1980). 22
Id. at 403 (quoting Mincey, supra, at
the Supreme Court’s decisions 6
See, e.g., Blake v. State, 954 A.2d 315 392).
in Brigham City and Fisher (Del. 2008); State v. Cline, 696 S.E. 2d 554 23
Id. at 404.
24
provide much-needed guid- (N.C. App. 2010); United States v. Porter, Id. at 404 (quoting Whren v. United
ance to officers who routinely 594 F.3d 1251 (10th Cir. 2010). States, 517 U.S. 806 (1996)).
7 25
354 F.3d 497, 503 (6th Cir. 2003) See Bond v. United States, 529 U.S.
confront situations, such as (internal quotations omitted). 334, 338 n. 2 (2000).
those present in these two cases. 8
Michigan v. Tyler, 436 U.S. 499, 509 26
Id. at 405.
Reliance on an objective rea- (1978). 27
Id. at 405 (quoting Welsh v. Wiscon-
9
sonableness standard allows Ker v. California, 374 U.S. 23, 40 sin, 466 U.S. 740, 753 (1984).
28
(1963). Welsh at 750.
for scrutiny based on the facts 10 29
United States v. Santana, 427 U.S. Id.
and circumstances confronting 38, 42 (1976). 30
Id. at 406.
law enforcement at the time, as 31
Id.
opposed to guesswork regard- 32
Id.
“
33
ing the officers’ intentions and Id. at 407.
34
Fisher at 547.
consideration of information 35
Id.
learned after the fact. 36
Id.
The legal standard set forth Reliance on an 37
Id.
by the Court in these cases objective reasonableness 38
Id.
enables officers to make on- standard allows for 39
Id.
40
the-spot decisions as to whether scrutiny based on the 41
Id. at 549.
Id. The Michigan Supreme Court
they should enter a home or facts and circumstances agreed to hear the case, but, after hearing
other dwelling to resolve an confronting law oral argument, vacated its order and let the
emergency situation. Because enforcement at the lower court’s ruling stand.
42
the government has the burden Id. at 548.
time…. 43
Fisher at 549 (internal quotations
of justifying warrantless search- omitted).
”
es and seizures occurring under 44
Id.
this exception, officers need 45
Id.
to fully articulate the specific 46
Lucy Ann Hoover, “Law Enforce-
facts and circumstances known 11
437 U.S. 385, 392 (1978). ment Response at a Crisis Scene: Protect-
12
547 U.S. 398 (2006); see, e.g., United ing Lives and Preserving the Admissibil-
to them at the time they acted. ity of Evidence,” FBI Law Enforcement
States v. Holloway, 290 F.3d 1331, 1337
This is essential because the (11th Cir. 2002); State v. Frankel, 179 N.J. Bulletin, April 2006, p. 30.
courts use an examination of the 586 A.2d 561 (2004), cert. denied; 543 47
See, United States v. Najar, 451 F.3d
totality of the circumstances to U.S. 876, 125 S. Ct. 108, 160 L.Ed. 2d 128 710 (10th Cir. 2006).
determine whether officers had (2004).
13
reasonable grounds to act.47 130 S. Ct. 546 (2009).
14
547 U.S. 400 (2006). Law enforcement officers of other than
15
Id. at 401. federal jurisdiction who are interested
Endnotes 16
Id. in this article should consult their legal
17
1
318 F.2d 205, 212; 115 U.S. App.D.C. Id. advisors. Some police procedures ruled
18
234, 241 (D.C. Cir. 1963). Id. permissible under federal constitutional
19
2
Wayne R. LaFave, 3 Search and Sei- Id. law are of questionable legality under
20
zure: A Treatise on the Fourth Amendment Id. at 401-402; Brigham City v. state law or are not permitted at all.
§ 6.6 (4th ed.) (quotations omitted). Stuart, 122 P.3d 506 (Utah, Feb. 18, 2005);
One weekend, during an off-duty rafting trip, Corporal Neal Mora of the
Texas City, Texas, Police Department rescued a fellow officer’s son from
drowning. As Corporal Mora prepared his raft along the bank of the river,
he noticed the 7-year-old child in serious distress. The boy was struggling to
swim to safety in the rough river and was in imminent danger of drowning.
Corporal Mora swam to the child, who then pulled the officer underwater.
Submerged and unable to breathe, Corporal Mora managed to hold the boy
above the water until other people arrived. Corporal Mora’s actions saved
a child’s life and prevented a tragic loss for a fellow officer and the depart-
Corporal Mora
ment as a whole.
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Patch Call
The patch of the Jefferson Township, New The central emblem on the patch of the San
Jersey, Police Department centers on the nam- Francisco, California, Police Department depicts a
ing of the department’s jurisdiction. The town- phoenix, a mythological bird. According to ancient
ship was incorporated in 1804, the same year as mythology, a phoenix’s tears have magical healing
Thomas Jefferson’s recorded inauguration as the powers, and the creature experiences rebirth from
third president of the United States. As such, the its own ashes after death. Like the phoenix, San
patch displays a profile bust of Thomas Jefferson, Francisco rose from the ashes after a devastating
intersecting U.S. and New Jersey flags, and the fire and earthquake in 1906. In the gold ribbon
year 1804. below the graphic reads the city’s motto, which
translates to “Gold in Peace, Iron in War.”