Procedure 804-Crowd Control and Events Management Flashcards
.01 INTRODUCTION
A. This procedure is designed to provide direction in planning and implementing the appropriate police response to
effectively manage and control crowds. Additionally, this procedure provides instruction for managing crowds in
those events which occur without sufficient notice to afford comprehensive planning.
B. The crowd management and control strategies employed in response to spontaneous events are similar to those used
for planned ones, the only difference being the procedures are implemented quicker and in a different order.
.02 TERMINOLOGY (For specific use within this procedure, see Glossary)
Civil Disturbance Planned Events Spontaneous Events Unusual Occurrence
.03 POLICY
A. The San Antonio Police Department provides the necessary direction, control, and security for persons assembled to
take part in civic and community functions; provided, such direction, control, and security is in the best interest of
the health, safety, and order of the City.
B. The Department is committed to the protection of the constitutional rights of persons and groups to conduct peaceful
and lawful demonstrations. However, in those situations which threaten the lives, property, rights, health, or safety
of the citizens, or the general order of the City, the Department responds immediately to establish control and restore
order. The Department contends with these situations in an appropriate manner so as to minimize the potential
threat.
.04 GENERAL PROCEDURES
A. The Deputy Chief assigned to the Tactical Support Division maintains the responsibility for identifying resource
needs and planning the appropriate police response for scheduled events. This Deputy Chief is hereafter referred to
as the Incident Commander for all planned events.
B. The supervisory officer-in-charge of the appropriate Patrol Division service area is responsible for initiating the
appropriate police action in response to spontaneous events. This supervisory officer, until relieved by a higher
ranking officer, is hereafter referred to as the Incident Commander.
C. In response to planned or spontaneous events, the Incident Commander is responsible for:
1. Meeting with the sponsors to discuss the required permits and applicable laws;
a. In planned events, the sponsors or leaders are readily identifiable, allowing for scheduled informal
meetings.
b. In spontaneous events, contact with the formal or informal leaders is made. When practical, this is a
personal contact, otherwise the crowd is addressed by use of a loudspeaker.
2. Identifying and acquiring the needed manpower;General Manual Procedures – Section 800Emergency Operations Page 2 of 10 Effective Date:July 31, 2010
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Procedure 804 – Crowd Control and Events Management
a. In planned events, the required manpower is obtained by the utilization of the on-duty members of the
Traffic Section, with additional volunteers solicited when necessary. Sufficient manpower to provide for
the relief of assigned personnel should be procured.
b. In spontaneous events, the available on-duty resources of all Patrol Division personnel is utilized, with
additional manpower needs acquired through the implementation of a mobilization phase in accordance
with GM Procedure 806, Mobilization.
3. Identifying and procuring additional resource needs;
a. In both planned and spontaneous events this includes, but is not limited to, communication equipment,
assignment of radio frequencies, vehicles, barricades, and riot control equipment.
b. Riot control equipment is stored in the Ready Room at Police Headquarters. Access to the Ready Room
and issuance of equipment is detailed in GM Procedure 309, Weapons.
4. Establishing a field command post and staging area in accordance with GM Procedure 802, Unusual
Occurrences and Critical Incidents;
5. Conducting major operations relating to large scale civil disturbances in accordance with this procedure and
GM Procedure 802;
6. Defining and establishing the inner and outer perimeters;
a. Whether the event is planned or spontaneous, the inner and outer perimeters should be defined as soon as
possible. Consideration is given to the size of the crowd, location of the event, and the potential for
disorder in determining these perimeters. The utilization of barricades and deployment of personnel serve
to identify these perimeters.
b. In events requiring large numbers of personnel or covering a large area, the area should be divided in the
quadrants or sections with each quadrant or section under the direction of a supervisory or command level
officer.
7. Defining and controlling ingress and egress points;
a. The establishment and control of points of entry and exit for participants, spectators, and maintenance
personnel should be identified in planned events. These points should be sufficient in number to provide
for the orderly and effective entry of the anticipated number of persons.
b. Emergency vehicle and emergency personnel entrances and exits should be defined. These points should
be manned by officers to provide assistance in directing any required emergency vehicles or personnel.
Establishment of these points must be a coordinated effort between all the emergency service agencies.
8. Considering possible scenarios and formulating contingency plans;
a. Emergency exits are established to provide for the expedient exit of persons in the event of a crisis.
b. Liaison with other emergency service agencies is maintained. Information relative to the size and
circumstances of the event is provided.
c. A sufficient number of officers may be held in reserve or assigned to non-critical posts to provide
immediate deployment or reassignment in the event of an emergency.General Manual Procedures – Section 800Emergency Operations Page 3 of 10 Effective Date:July 31, 2010
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Procedure 804 – Crowd Control and Events Management
.05 CROWD MANAGEMENT TECHNIQUES
A. Crowds can generally be categorized into three (3) types:
1. Passive;
2. Active; or
3. Volatile.
B. The first two (2) types of crowds, passive and active, require crowd management techniques. The third type of
crowd, volatile, requires crowd control strategies and/or dispersal tactics.
C. Crowds can very rapidly turn from a self-controlled and passive to active or volatile. Officers should watch for
signs that indicate a crowd is changing character.
D. Each category of crowds can be divided, with each having a recommended action as follows:
1. Passive:
a. Tranquil - The members of a tranquil crowd are lawfully pursuing their interest with the safety of others in
mind. As such, they require no police control.
(1) Example: Mall shoppers
(2) Recommended Action: None
b. Apprehensive - A sudden or unanticipated development may cause members of a crowd to become
apprehensive.
(1) Example: A bomb threat
(2) Recommended Action: Provide accurate information
c. Exuberant - An exuberant crowd gathers for an enjoyable event. This crowd responds to cheerleading, flag
waving, and music. It is an enthusiastic crowd and follows cues.
(1) Example: Concerts and parades
(2) Recommended Action: Monitor
2. Active:
a. Confused - Members of a tranquil crowd who don’t have sufficient information and the perplexing situation
causes confusion and anxiety.
(1) Example: Stalled traffic
(2) Recommended Action: Provide accurate information
b. Annoyed - Members of passive crowds experiencing confusion and a feeling of being denied information
relative to a current difficulty.
(1) Example: A scheduled event is delayed or postponedGeneral Manual Procedures – Section 800Emergency Operations Page 4 of 10 Effective Date:July 31, 2010
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Procedure 804 – Crowd Control and Events Management
(2) Recommended Action: Provide accurate information and monitor closely. Begin planning for control
strategies.
c. Physically Active - Members of exuberant crowds who begin to throw objects for others to catch in the
spirit of having fun.
(1) Example: Frisbee throwing in an arena/aerosol string dispensers.
(2) Recommended Action: Take immediate action to stop activity and prevent non-active participants
from becoming annoyed.
d. Protesting - An antagonistic, often hostile, crowd seeking to bring about a change in a relationship or
structure. If this crowd is frustrated in its immediate efforts to achieve change it may become volatile.
(1) Example: Labor dispute/civil protest
(2) Recommended Action: Contact leaders and establish firm rules for crowd’s behavior.
3. Volatile:
a. Panicked - Panic resulting from a need to get away from a situation or out of an area in preservation of life.
(1) Example: A fire in a crowded auditorium
(2) Recommended Action: Provide accurate information, use control measures and provide avenues of
escape.
b. Malicious - This crowd, often a group of members within a crowd, possesses a self-centered intent. It
pushes and shoves others without concern. Its behavior is without concern for the safety or well-being of
others and breaks laws.
(1) Example: Throwing cans, bottles, and fireworks in an arena/gang members mixed in with a passive or
active crowd.
(2) Recommended Action: Remove actors immediately or place under close surveillance.
c. Unruly - This crowd, a mob, openly and defiantly breaks the law. It is angry and destructive. While a
crowd of malicious individuals may be a small group within another crowd, this crowd is composed almost
entirely of lawbreakers and rioters.
(1) Example: A riot
(2) Recommended Action: Full crowd control measures
.06 CROWD CONTROL STRATEGIES
A. Crowd management techniques should be utilized first; however, in situations where there is an imminent threat to
public safety, control strategies should be developed simultaneous to the implementation of management
procedures.
B. The governing factor in tactical operations is one of teamwork, each individual subordinating himself to the orders
and direction of the team leader. The Incident Commander must evaluate his current resources and commit the
available units to the portion of the disturbance which can be controlled. A force of insufficient strength, too hastily
deployed, may only aggravate a situation. Leaders must ensure that the engaged police units grasp the initiative and
assume and maintain the initial advantage in street situations.General Manual Procedures – Section 800Emergency Operations Page 5 of 10 Effective Date:July 31, 2010
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Procedure 804 – Crowd Control and Events Management
C. The strategies employed are determined by the Incident Commander and must be relevant to the situation.
Situations and circumstances involved frequently change and the police must adjust to the given or perceived threat.
Therefore, the following techniques do not establish a “set” plan of action, but provide direction in formulating the
methods to be utilized.
1. Show of force:
a. The anxiety level of a crowd can occasionally be reduced by the knowledge of a substantial police presence
without the actual display of the force.
b. A show of force to disperse a crowd is most effective when the officers are assembled outside the view of
the crowd and make a surprise formidable appearance. To be most effective the officers should march in
formation into view, remain a reasonably safe distance from the crowd, halt, and remain in formation in
view of the crowd.
c. A show of force should not be utilized unless there is sufficient strength to accomplish dispersal. A
proclamation and dispersal order should be made in conjunction with the show of force.
2. Selective arrests:
a. In those situations where the overall crowd is generally peaceful and there are individuals within the crowd
that hide behind the anonymity of the group to throw objects at the police or to incite or provoke the crowd,
plainclothes officers, in squads, may be sent into the crowd to identify the person or persons.
(1) The plainclothes officers should not make the arrest(s), unless the person(s) leaves the crowd and the
arrest(s) can be made without jeopardizing the identity of the officers.
(2) In a generally hostile crowd or when overt arrest(s) are necessary, a squad of uniformed officers should
make the arrest(s).
b. Prior to making selective arrests, a sufficient force of officers should be present to deal with the entire
crowd, should it become necessary.
3. Dispersal orders:
a. When crowd management and control measures fail to control or disperse a crowd, a proclamation and
dispersal order shall be given.
b. The Incident Commander shall designate a command level officer to give the proclamation and order the
crowd to disperse.
c. The designated officer shall address the entire crowd with a loudspeaker, stating the assembly is involved
in an unlawful act and is in violation of a specific law (naming it). The assembly has been declared
unlawful and ordered to disperse (stating a specific length of time to comply) and those individuals who fail
to disperse will be arrested.
d. An avenue for the crowd to depart must be provided. Notice of the dispersal order and the direction
provided for departure of the crowd must be relayed to all operational units.
e. Whenever possible, an audio/visual record of the dispersal order is made.General Manual Procedures – Section 800Emergency Operations Page 6 of 10 Effective Date:July 31, 2010
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Procedure 804 – Crowd Control and Events Management
.07 DISPERSAL TACTICS
A. In the event a dispersal order has been given and the crowd fails to voluntarily disperse, the Incident Commander
must employ tactics to disperse the crowd. Consideration of the existing circumstances must be given in
determining the appropriate tactics utilized.
B. The Incident Commander should determine the direction in which he intends to disperse the crowd. In determining
the direction the crowd is to be directed, consideration should be given to dispersing the crowd away from business
areas, where looting or arson may occur, and towards an area where the physical constraints tend to break the crowd
into small groups, or into areas where minimal physical damage can occur.
C. The following configurations and formations of manpower and their utilization for crowd control are limited to
those areas where sufficient manpower is available to direct and disband the crowd. Before employing crowd
control formations the area needs to be secure of sniper fire and minimal physical resistance anticipated.
1. Manpower configurations:
a. Squad - 1 Sergeant, 13 officers.
b. Platoon - 1 Lieutenant, 4 Squads.
c. Company - 1 Captain, 3 Platoons.
2. Formations:
a. A “Squad Line” is employed as either an offensive or defensive formation. It is basically a line of officers
across a street or open area. It is continuous without spaces along the front. The flanks of the line must be
anchored by obstacles such as buildings.
b. A “Squad Echelon” is used to turn a crowd away from an obstacle, such as a building, or to direct its
movement. It may be used to move the crowd either left or right as an offensive formation.
c. A “Squad Wedge” is an offensive formation used to divide a crowd into smaller segments.
3. Offensive formations should assault two (2) or more directions at once to be effective. However, an assault to
the front and rear should not occur simultaneously, as elements of the crowd may escape to the rear of
advancing units. Offensive assaults include:
a. The “Pincer” method which is an assault from the front and both flanks. This method tends to drive the
crowd before the frontal assault; and
b. The “Flanking” method which is an assault to the front and one flank.
D. In the event the crowd is armed with rocks, bottles, etc., consideration should be given to the use of chemical agents
followed by a tactical sweep. The use of chemical agents is only authorized by order of the Incident Commander.
Consideration to the direction of the wind, the size of the crowd, and geographical conditions must be made.
1. Chemical agents must be used in sufficient quantities to produce an immediate and decisive result.
2. Officers assigned to formations which will disperse the crowd following the use of chemical agents should be
issued gas masks.
3. Notice to the officers involved and, if practical, to the crowd should be made prior to use of a chemical agent.
4. Smoke should be used prior to the use of chemical agents.General Manual Procedures – Section 800Emergency Operations Page 7 of 10 Effective Date:July 31, 2010
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Procedure 804 – Crowd Control and Events Management
5. The officer(s) assigned to release the agent should be positioned behind the formation of the officers assigned to
assault the crowd.
6. In some instances, such as anticipated violent resistance or large crowds, it may be necessary for chemical
agents to be covertly released.
E. After a successful assault, the elements of dispersing the crowd should be followed to prevent reformation.
1. Agitators should be arrested. If necessary, arrest groups should be assigned to the assault teams to maintain the
integrity of the formations.
2. Squads should be assigned to sweep through affected areas. When the affected area is large, it should be
divided into smaller sections with the necessary squads assigned to each section.
F. Mobile saturation units consisting of four (4) officers operating a single marked vehicle should be deployed in a
sufficient number to allow the officers to:
1. Handle emergency calls within the outer perimeter;
2. Act as a mobile reserve force to assist foot patrols;
3. Act on its own initiative against small groups;
4. Patrol access routes; and
5. Enforce a curfew.
G. When sniper activity is reported or observed:
1. The area should be isolated;
2. Officers should not return fire unless absolutely necessary; and
3. The Incident Commander activates SWAT.
.08 MULTIPLE ARREST PROCEDURES
A. The concept of multiple arrest groups is to provide a specialized group of officers working together during large
scale arrests at major events to deal with all aspects of the arrest process, from the initial arrest to the delivery of
prisoners to the City of San Antonio Detention Center, permitting the primary line officers free to manage the event.
1. In most mass arrest situations, the Special Operations Unit is utilized for making arrests. In the event this unit is
not available, other personnel are utilized and organized according to groups prescribed in Subsection .08D.
2. All members of arrest groups are in complete uniform unless otherwise directed by the Incident Commander.
B. The Incident Commander, anticipating multiple arrest situations:
1. Coordinates the implementation of these procedures with the commanding officer of the Special Operations
Unit. An estimate of the number of potential arrestees and whether they will be peaceful or violent is made to
determine the number and size of arrest groups needed; and
2. Notifies the City of San Antonio Detention Center and Juvenile Processing Office supervisors of the anticipated
multiple arrests.General Manual Procedures – Section 800Emergency Operations Page 8 of 10 Effective Date:July 31, 2010
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Procedure 804 – Crowd Control and Events Management
C. The Commander of the Special Operations Unit:
1. Maintains the equipment and training status of arrest groups;
2. Implements the multiple arrest procedures in their entirety when directed by the Incident Commander; and
3. Designates a field detention area near the site to allow for the preparation of prisoners for booking.
D. Arrest groups:
1. Arrest groups consist of the following personnel:
a. Supervisory officer assigned as the group leader;
b. Two (2) or more officer arrest teams;
c. Two (2) or more officer support teams; and
d. One (1) or more officer transporting teams.
2. Arrest groups maintain the following equipment:
a. Numbered plastic handcuffs;
b. One or more prisoner transport wagons;
c. Booking slips; and
d. Cameras and related equipment.
3. Arrest groups may expand in size or number according to the number of arrests anticipated or the amount of
resistance contemplated. The determinant being the ability of the group to expedite the flow of arrestees.
E. Arrest procedures:
1. When practical an audio/visual record is made of all arrests.
2. The supervisor assigned as the group leader designates arrest teams to begin arresting selected participants. A
support team is assigned to the arrest team as back-up as needed.
3. Persons who offer no resistance are walked to the field detention area. In the event a person offers passive
resistance in refusing to accompany the officers, the person is lifted and walked or carried to the field detention
area.
4. When groups of demonstrators to be arrested lock arms, the arrest team untangles the demonstrators one at a
time. A support team is assigned to serve as back-up for the arrest team as needed.
5. Each person arrested is handcuffed and searched. Numbered plastic handcuffs are utilized to handcuff and
identify persons arrested. In passive demonstrations, the Incident Commander may decide not to handcuff
arrested persons in order to diminish the crowd’s anxiety; however, a numbered plastic handcuff is placed
around the wrist of the arrested person to serve as identification.
6. Persons arrested are taken to the field detention area by the arrest team. The assigned support team
accompanies the arrest team to the field detention area, and then returns to the incident site for further
assignment.General Manual Procedures – Section 800Emergency Operations Page 9 of 10 Effective Date:July 31, 2010
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Procedure 804 – Crowd Control and Events Management
7. At the field detention area:
a. Arrestees, when necessary, are provided medical treatment, water, and public facilities. Food is not
provided to arrestees;
b. The arrest team and the arrested person are photographed;
c. One of the arrest team officers completes the booking slip, recording the number of the plastic handcuff in
the box labeled “Alias Names.” The reverse side of the photograph contains the date and time of the arrest,
the names of the arresting officers, the assignment number, and the plastic handcuffs number;
d. The other arrest team officer completes the offense report, recording the plastic handcuffs number in the
box labeled “Alias;”
e. The prisoner, his property, the booking slip, photograph, and offense report are delivered to the transporting
officers; and
f. The arrest team returns to the incident site for further assignment.
8. At the direction of the arrest group supervisor, the transporting officers proceed to the Detention Center. Upon
arrival the transporting officers:
a. Release the prisoners to the Detention Center personnel;
b. Make a photo copy of the offense report, photograph, and booking slip;
c. Present the booking slip and copy of the photograph to the Detention Center personnel;
d. Present the copy of the offense report to the magistrate’s office and magistrates the prisoner;
e. Retain the original photograph, offense report, and the copy of the booking slip (stapled together); and
f. Return to the field detention area for further assignment.
9. Upon completion of the arrest process or upon relief, the transporting officers submit all photographs, offense
reports, and booking slips to the supervisor of the arrest group.
.09 DE-ESCALATION PROCEDURE
A. As the situation subsides and order is restored, the Incident Commander surveys the affected area and determines the
need for police personnel and equipment at the scene. In the event the City of San Antonio Emergency Operations
Center (EOC) was activated, the Incident Commander, at the direction of the EOC Commander, decreases the
number of personnel and equipment at the scene until only the personnel directly involved in the operation remain.
B. In the event personnel were recalled through the implementation of a mobilization phase, relief of personnel is
conducted as follows.
1. Phase 1 – The relief of personnel begins with personnel assigned under the last mobilization phase implemented
and continues until only Traffic Section personnel are assigned.
2. Phase 2 – Eight (8) hour shifts utilizing Traffic Section personnel are implemented.
3. Phase 3 – Normal operations are restored.General Manual Procedures – Section 800Emergency Operations Page 10 of 10 Effective Date:July 31, 2010
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Procedure 804 – Crowd Control and Events Management
.10 CONCLUSION ACTIVITIES
A. Upon the deactivation of subordinate units, commanders ensure each supervisor submits a written report to:
1. Account for all equipment issued to personnel under their supervision; and
2. Record the name, badge number, dates, times, and assignments for each member under their supervision.
B. Upon conclusion of all activities related to a spontaneous event:
1. All commanders prepare an after-action report which is submitted to the Incident Commander within ten (10)
days. The after-action report contains a complete and detailed account of the operation of subordinate units
under their command during the event.
2. The Incident Commander prepares a final report detailing the Department response to the event. This report is
submitted, along with a copy of the Command Post Journal, to the Chief of Police within thirty (30) days.
3. The Fiscal Planning Manager prepares an operational cost report which is submitted to the Office of the Chief.
C. After-action critiques are conducted at the direction of the Chief of Police or the Incident Commander.
General Manual Procedures – Section 800Emergency Operations Page 1 of 10 Effective Date:July 31, 2010
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Procedure 804 – Crowd Control and Events Management
Office with Primary
Responsibility:
TSC Effective Date:
Prior Revision Date:
July 31, 2010
October 01, 2009
Office(s) with Secondary
Responsibilities: PSC, PNC, FTC, IDC, SSO Number of Pages: 10
Forms Referenced in Procedure: None Related Procedures: 309, 802, 806
