G.O. 7.04 - Crowd Control And Management

Purpose and Policy

• Purpose: Provide Norwich Police Department (NPD) personnel with guidelines for acceptable crowd control and management.

• Core policy objectives:

  • Apply appropriate direction/control to protect life, property, and vital facilities.

  • Maintain public peace and order during demonstrations.

  • Uphold constitutional rights of free speech/assembly.

  • Employ the minimum level of physical force and authority necessary.

  • Ensure adherence to POSTC accreditation requirements (Section 7 – Special Operations).

• Legal disclaimer:

  • General Order is for internal use; does not create higher legal standards in civil/criminal proceedings.

  • Violations trigger departmental sanctions; unlawful acts lead to civil/criminal sanctions in court.

Key Definitions

• Crowd Management: Techniques to manage lawful assemblies before, during, after events (e.g., permits, communication with planners, critiques).

• Crowd Control: Techniques for unlawful assemblies (show of force, containment, dispersal, arrest procedures).

• First Amendment Activities:

  • Any expressive conduct conveying ideas (speeches, vigils, picketing, banners, puppets, street theater, etc.).

  • Government may impose time/place/manner restrictions if: content-neutral, narrowly tailored to significant interest, ample alternative channels remain.

• Demonstration: Public display of feelings/ideas (marches, protests, walk-outs, sit-ins) attracting participants, onlookers, media, counter-protesters.

Planning and Incident Command

• Immediate notification of Chief of Police for large/potentially disruptive events; Chief assigns an Incident Commander (IC).

• IC responsibilities:

  • Develop written operations plan (pre-planned events incorporate Directive 7.03 §III(L) elements).

  • Employ Incident Command System (ICS).

  • Establish contact/communication with event planners.

• Spontaneous events: Same policies/rules apply despite reduced planning time.

Authority and Documentation of Decisions

• IC (or higher) makes decisions on:

  • Crowd dispersal, containment/redirection strategies.

  • Multiple simultaneous or planned individual arrests.

  • Planned uses of force.

• If Chief (off-scene) makes decision, IC must be consulted first.

• All decisions documented in writing (time, identity, directives) and included in After-Action Report.

• Supervisors/officers may act immediately to protect life if delay increases risk.

Crowd Management Conduct

• Resource deployment:

  • Sufficient personnel for multiple arrests, balanced against chilling free speech.

  • Extra resources staged out of crowd’s sight when possible.

  • Officers positioned before participants arrive.

• Team structure: Officers operate in squads/platoons.

• Identification: Badge, nameplate, or ID number clearly visible; helmet letters ≥ 2 inches.

• Preferred support: Use Connecticut State Police or mutual aid rather than on-duty patrol for large shows of force.

• Crowd heterogeneity recognized; avoid treating all members alike.

• Verbal engagement:

  • Avoid negative interactions; verbal abuse alone ≠ arrest/use of force.

• Professionalism: Remain neutral, avoid independent/impulsive actions; strong supervision essential.

• Mission: Complete objectives efficiently, unobtrusively, with highest regard for dignity and minimal force.

• Routine police duties (traffic direction, ordinance enforcement) remain authorized when necessary for safety.

Responses to Crowd Situations

Spontaneous Events

• Shift supervisor responds, assumes IC role, announces command via radio, sets up command post when practical.

• Rapid assessment checklist:

  1. Location/type of event.

  2. Lawfulness of First Amendment activity.

  3. Number engaged in unlawful conduct.

  4. Risk of unlawful behavior spreading.

  5. Immediate threats to safety.

  6. Structures/vehicles involved.

  7. Size of area.

  8. Extra officers/specialized units needed.

  9. Response code ($1$ or $3$).

  10. Staging area.

  11. Media staging area.

  12. Ingress/egress routes.

  13. Additional resources (EMS, Fire, outside agencies).

Planned Events (Large Crowds)

• IC contacts Chief; Chief contacts State Police / mutual aid.

• Written operations plan required; redeployment plans must be approved by Chief.

Crowd Control / Dispersal Techniques

• Preference for multiple simultaneous arrests (non-violent protestors) over forceful dispersal.

• IC makes final control-action decisions; must constantly reassess tactics.

• Safety of bystanders considered in every decision.

Declaring an Unlawful Assembly

• Legal basis: Connecticut General Statutes § 53a-177 (Riot/Unlawful Assembly).

• Conditions:

  • Actual illegal acts OR clear/present danger of imminent violence.

  • Permit violations alone insufficient.

  • Past violence by group ≠ automatic unlawful assembly.

• Negotiation requirement: Attempt to resolve via liaisons/leaders before dispersal (unless immediate danger).

• Post-dispersal re-assembly: New peaceful assembly cannot be dispersed unless separately unlawful.

Official Declaration Procedure

1. Repeated amplified announcements ordering voluntary dispersal + warning of arrest/force.

2. Use adequate sound equipment; broadcast from multiple locations for large/noisy crowds.

3. Provide at least two escape routes.

4. Orders given in Spanish and other relevant languages.

5. Record issuer’s name, date/time of each order.

6. Ensure officers positioned to guide movement before ordering.

7. Standard wording (fill-ins indicated):
   "I am (rank/name), a police officer for the City of Norwich. I hereby declare this to be an unlawful assembly and command all those assembled at (location) to immediately leave. If you do not do so, you may be arrested or subject to other police action, including the use of force which may result in serious injury. The following routes of dispersal are available (routes). You have ____ minutes to leave. If you refuse to move, you will be arrested. If you refuse to move, chemical agents will be used."

Approved Tactics and Weapons for Non-Compliant Crowds

• All require IC/supervisor authorization; minimal necessary force principle governs use.

1. Display of Officers (forceful presence)

   • Formations staged out of sight; moved visibly when ready; must have capacity to follow through.

2. Encirclement & Arrest

   • Encircle whole/part of crowd for multiple arrests after failed dispersal.

   • Protestors seeking arrest (sit-down, lock arms) are arrested without other force.

   • Non-violent arrest methods: verbal persuasion, handcuffing, lifting/carrying, dollies/stretchers, control holds.

   • Control holds (bent-wrist, twist-lock) authorized only when other methods fail, are lawful, and documented.

3. Police Formations & Batons

   • Formation types: skirmish line, wedge, echelons.

   • Batons: displayed ready; pushing/jabbing allowed only vs. individuals who are aggressive/actively resisting and able to move.

   • Prohibited strikes: head, neck, throat, kidneys, spine, groin, armpit (unless imminent serious-injury/death threat).

   • Never used on handcuffed persons.

Weapons and Tactics Specifically Prohibited

1. Lethal force – governed by standard Use of Force policy (no special allowance in crowd control).

2. Canines – not for crowd control/containment/dispersal.

3. Fire hoses – prohibited.

4. Motorcycles – B.U.M.P. technique banned; cycles only for observation, deterrence, traffic control, transport.

5. Specialty Impact Less-Lethal Weapons (SIM):

   • Skip-fired munitions (wooden dowels, Stinger grenades) prohibited.

   • Direct-fired SIM (bean bags, flexible batons):
     • Not for crowd management/control/dispersal.
     • May target specific individual posing immediate threat of loss of life/serious injury or causing major property destruction creating imminent risk.
     • Supervisor direction required; attempt less forceful means; give audible warning if practical.
     • Medical evaluation mandatory for impacted persons; transport to hospital.
     • Only trained officers deploy; no use on restrained persons; no shots to head, neck, throat, face, left armpit, spine, kidneys, groin unless deadly force justified.

6. Electronic Control Weapons (ECWs) – e.g., Tasers – not for crowd events.

7. Aerosol Hand-Held Chemical Agents (OC):

   • No indiscriminate use; only against specific actively resisting individuals with supervisor approval.

   • Minimum necessary dosage; remove subjects quickly; monitor breathing.

   • Medical treatment within 45 minutes; no prone positioning once cuffed.

Arrest Procedures

Multiple Simultaneous Arrests

• Planners estimate potential arrestees; configure arrest teams; notify CT State Police & bordering jurisdictions.

• Ensure sufficient officers to effect arrests (serves as deterrent to others).

• Pre-arrange transportation when on-scene citation impractical.

• IC decision factors:

  1. Improvement over inaction.

  2. Offense seriousness vs. escalation risk.

  3. Effectiveness of individual vs. mass arrests.

  4. Secured escape routes.

  5. Communication with crowd reps.

  6. Contingency plans.

  7. Force options if needed.

  8. Maintain neutrality despite passive resistance.

Handcuffing

• All arrestees handcuffed per policy.

• Flex-cuff considerations: swelling, pain; each unit carries cutters/extras; officer writes serial number on cuffs; adjust if complaint.

Juveniles

• Handle per juvenile arrest/transport/detention policy.

Documentation and Recording

• Videotaping/photography only with IC or supervisory approval; minimize interference with lawful activity.

• Do not single out leaders/speakers for recording.

• Camcorder operators file supplemental reports.

• Non-evidentiary media not shared outside agency; if shared, log date/recipient.

• Destroy irrelevant recordings per policy; destruction documented.

• Training use of footage allowed.

Reporting

• IC ensures timely notification to Chief.

• Officers file required reports per department policy.

Media and Public Information

• Media’s right to cover/record demonstrations recognized.

• Must be allowed proximity to observe arrests; even post-dispersal order, identified media may stay unless it interferes.

• Legal observers/crowd monitors lack media status; must obey orders but may be permitted to stay if no interference.

• Never target media/observers/planners for enforcement due to status.

Training Requirements

• All procedures reviewed for consistency with new policy & Training Bulletin.

• Mandatory training for all officers on these policies.

• Officers may not use less-lethal weapons without required training.

Ethical & Legal Considerations

• Respect for First Amendment freedoms central; policing strategies must be content-neutral.

• Decision-making grounded in $53a!- 177$ criteria (unlawful assembly) and constitutional jurisprudence:

  • Clear/present danger test.

  • Time/Place/Manner doctrine.

• Documentation and transparency (After-Action Reports, video logs) promote accountability.

• Differential treatment of crowd sub-groups acknowledges individualized rights/responsibilities.

• Medical duty of care emphasized (OC, SIM impacts).

Numerical / Statistical References, Formulas, Equations

• Height of helmet lettering: $\geq 2\text{ inches}$.

• Flex-cuff medical transport window: $\leq 45\text{ minutes}$ after OC exposure.

• Dispersal order template includes variable "____ minutes" for compliance period (IC determines).

• Response codes referenced: $\text{Code 1}$ (routine), $\text{Code 3}$ (emergency).