1
Chapter 1
INTRODUCTION
Purpose of the Study
Gang violence is a serious problem and gang members commit violent crime at a
rate three times higher than those who are not gang members (Jackson, 1999). In
addition, Peterson, Taylor, and Esbensen (2004) explain that research has shown that
there are higher levels of delinquency among gang members relative to those who are not
gang members. Furthermore, in a self reported study in Rochester, New York, gang
members comprised only 31% of the sample but committed approximately 69% of all
reported violent crime. In the same study, data from Seattle suggest that gang members
who comprised of only 15 % of the sample accounted for 85 % of all robberies (Peterson,
et al., 2004). Moreover, in 1996, the city of Dallas had 79 gangs made up of 6,145
documented members. Dallas also recorded 1,332 major incidents that were gang-related
in the same year (Fritsch, Caeti, & Taylor, 1999). Finally, city-level studies found gangrelated motives in more than one third of the homicides in Chicago, 50% in Los Angeles,
and 60% of youth homicides in Boston (Braga, McDevitt & Pierce, 2006).
For years, police agencies have pursued different tactics designed to manage the
prolific problem of gangs and gang-related violence. According to the National Youth
Gang Survey, the primary strategy in many agencies is suppression (Spergel & Curry,
1990). Generally, suppression involves arresting, prosecuting, and incarcerating gang
2
members. Although suppression is a primary focus in many jurisdictions, it is also seen as
the least effective to curtail gang-related violence (Spergel & Curry, 1990).
Several authors, while noting that gangs cannot completely be eradicated, believe
that law enforcement can manage and even suppress the more negative aspects of gang
violence (Huff & McBride, 1993). One way law enforcement agencies have attempted to
curtail violence is utilizing crackdowns. Crackdowns often involve sharp increases of
police presence in a high crime area in an attempt to deter general crime and other related
misconduct (Sherman, 1990). Klein (1995) explains how gang-related probation and
parole sweeps were effective when not publicly announced. Essentially, random and
unannounced searches yielded great results from those gang members searched by the
Los Angeles County Sheriff’s Department. On the other hand, when the department prereleased their sweeps for public recognition, it was just a public relations tactic, and their
statistics were greatly reduced.
Kelling (1996) describes components of police agencies and the many duties and
responsibilities they have been demanded of to protect the communities they serve:
A basic purpose of police is crime prevention. The idea that police cannot do anything
about crime, and they stand helpless in the face of demographics, drugs, gangs, or
whatever is unacceptable- often… a ‘copout’ that covers lack of strategic commitment
and the absence of planning and implementation. (p. 31)
According to Fritsch et al. (1999), the police concern themselves with a narrow
mission to develop effective strategies to address the crime problems that gangs create. In
3
addition, Bullock and Tilley (2008) believe that developing a means of understanding and
tackling gang violence seems to be more important than ever. To date, the authors
indicate that there have been few systematic attempts to understand gang-related violence
in the UK and to prevent its reoccurrence. The most predominant response to gangrelated violence has been to attempt to deter offenders and punish them rather than to
develop and implement interventions to prevent further incidents. With constant and
ruthless gang-related violence affecting our communities, coupled with harsh economic
times and a lack of police resources, what is the most effective way law enforcement can
suppress gang-related violent crime?
The purpose of this manual is to assist law enforcement agencies with designing
and implementing a crime suppression or gang unit within their respective agency. While
several local law enforcement agencies may assist the Crime Suppression Team, the idea
of a manual allows not only for allied agencies to know how the Vacaville Police
Department’s gang unit conducts itself, but it also clarifies the policies that direct the
team. This allows for safer and more effective operations while allied agencies assist the
Crime Suppression team.
As detectives transfer out of the Crime Suppression Team, the manual will allow
for a smooth transition for new detectives entering the Crime Suppression Team. The
manual will guide new detectives and answer possible questions they might have
regarding the day-to-day operations of the Crime Suppression Team and the policies that
guide them.
4
Definition of Terms
Gang- Three or more people with a common sign, symbol, or name who engage in a
pattern of criminal activity.
Crime Suppression Team (CST) - A specialized investigative unit within the Vacaville
Police Department whose primary role is to monitor, document, and investigate gangrelated crime.
Sweeps- Large scale multi-agency proactive enforcement operations targeting high crime
areas and individuals on probation and parole.
Fairfield Gang Unit (FGU) - Fairfield Police Department’s specialized gang
investigative unit.
5
Chapter 2
LITURATURE REVIEW
Understanding Gangs
Many federal, state, and local law enforcement officials and politicians believe
that certain communities are in the midst of a gang holocaust (Spergel, 1995). Section
186.22 (f) of the California Penal Code defines criminal street gang as “three or more
people with a common sign, symbol, and name who engage in a pattern of criminal
activity.” Society faces more brazen and dangerous gang members every day, and
regardless of their age, they are truly a threat to communities across the state. Klein
reports that between 1961 and 1970 there was a 74% increase in the number of gang
involved cities. They report an 83% increase from 1970 to 1980, and a phenomenal 345%
increase from 1980 to 1992 (as cited in Thornberry et al., 2003, p. 2). Both of these
examples reflect the fact that gangs and gang-related crimes are no longer just a big city
problem, rather smaller and smaller cities are affected by gangs and the violence they
bring with them. Gang-related crime has spread like wildfire in the past 20 years and little
has been done to combat it.
Thornberry et al. (2003) indicate that their research ultimately showed that gang
members are responsible for the lion’s share of the delinquent acts committed in their
Rochester sample. In the same study, Thornberry et al. (2003) found that the majority of
juvenile crime was in fact committed by gang members and the suggestion was made that
this could be found in almost all communities. Gangs claim area or “turf” to which they
6
defend by any means possible. Gang activity includes bullying, or intimidating others,
stealing and selling stolen goods, and selling and using drugs (Struyk, 2006). Meacham
and Stokes (2008) explain that gangs provide a sense of belonging. Symbols such as
dress, tattoos, hand gestures, and special codes promote bonding and deliberately
excludes those not able to understand the meaning.
Virtually every race, ethnicity, gender, and age can be included in trying to define
who a gang member is. The most predominant traits are Caucasian, Hispanic, and
African-American males between the ages of 15 to 24. However, there have been cases
where children as young as 6 years old have been part of a gang (Thornberry et al., 2003).
Most gang initiations include the term “jumping in” where a prospect shows his
allegiance to the gang and is assaulted by its own members as a rite of passage that
signifies acceptance into the gang (Meacham & Stokes, 2008).
Struyk (2006) explains that most involvement with gangs starts well before high
school. By the fifth grade, many youth are affiliated with gangs and on their way to full
membership. Juveniles often join gangs because their friends are in the gang, and they
lack the family support to guide them away from potential problems. While at other
times, family members may in fact be in a gang themselves and support the idea of living
a gang lifestyle (Meacham & Stokes, 2008). There are times when a juvenile lacks self esteem, and the gang brings with it a sense of brotherhood and belonging. Along with the
sense of brotherhood comes a sense of protection from rival gangs or would be bullies
(Thornberry et al., 2003).
7
In order to prevent a juvenile from solidifying a gang lifestyle and continuing on
to become a career criminal, experts agree that the best time to intervene is immediately
upon noticing activity (Meacham & Stokes, 2008). “Gang members exhibit extensive
involvement in delinquency before joining a gang, increase their delinquency even more
upon entering the gang, and then decrease their level of delinquency after exiting the
gang” (Peterson et al., 2004, p. 796). Thornberry et al. (2003) agree that violent
delinquency is only slightly higher in the year a juvenile joins a gang; however, activity
increases substantially during active membership of a gang. Joining a gang at a relatively
early age may indicate antisocial precociousness and lead to a more extensive
involvement in deviant careers later. Feld (1999) also writes that youths, whose
delinquency careers begin early and who become chronic offenders as juveniles, are more
likely to continue serious and violent offending into adulthood. Because much of the
research agrees that crime is at its highest point when a juvenile is active in a gang, then
the solution must include an attempt to remove the juvenile from the gang in order to
lower violent crime and to prevent juveniles from becoming career criminals.
History of Gangs
According to a 2002 national survey of state prison systems, California and Texas
account for nearly 70 % of all prison gang members in the nation. While other states
account for about 1 % of prison gang members incarcerated, California accounts for more
than 5,000 prison gang members incarcerated (Trulson, Marquart & Kawucha, 2006).
According to Valdez (2009), prison gangs developed and evolved in the U.S. prison
8
system for a number of reasons. The most common reasons are for protection and control.
Prison gangs can also exert their influence on street gang activity outside of the prison.
As such, most street gangs will honor and pay homage to a state prison gang. To the
street gangs, prison gangs and their members are the “bad of the bad,” and some street
gang members will aspire to become prison gang members (Valdez, 2009, p. 40).
The validated prison gangs in California’s prison system include the Mexican
Mafia, the Nuestra Familia, the Black Guerilla Family, and the Aryan Brotherhood
(Trulson et al., 2006). According to Valdez (2009), “going to prison is a goal for some
street gang members. It can be the equated to going to college, graduating and obtaining a
fortune 500 company job” (p. 43). According to Trulson et al. (2006) most gangs
emphasize identity and symbolism based on race and ethnic divisions where the ‘blood
in, blood out’ mantra is found, with lethal repercussions coming to those who would shift
allegiances, mingle with the wrong crowd (or race), or attempt to drop out of the gang.
In the early 1960’s, a new phenomenon was spawned in the California prison
system: highly organized prison gangs. These groups were so secret and well-organized
that the prison system was undermined and control was wrestled from prison officials
before anyone was aware of their existence (Jackson & McBride, 1991). Two factors that
Jackson and McBride (2006) discuss as to why prison gangs were formed include racial
violence and the Prisoner Rights Reform Movement. Racial violence and tension has
been constant inside of prisons, and to combat this, racial segregation was encouraged,
which inadvertently allowed gangs to form. Moreover, The Prison Rights Reform
9
Movement allowed inmates to request transfers to different facilities allowing for not
only more development and recruitment, but it ensured that violence could be carried out
against any inmate at any facility. As gangs grew, it became obvious that essentially, “no
one within prison walls would be safe from gang assassinations, beatings, and
intimidation” (Jackson & McBride, 1991, p. 51-52).
According to most scholars, the first and most notorious prison gang that formed
was the Mexican Mafia. Mexican Mafia gang members identify with the name EME or
the letter “M” in Spanish. Moreover, the letter “M” is the 13th letter in the alphabet, so it
is believed that the Mexican Mafia and other Sureno gang members associate with any
variation of the number 13 (Valdez, 2009, p. 41). The word Sureno is Spanish for
“South,” and it is also commonly associated with the Mexican Mafia as is any variation
of Sur or Sureno. These variations are associated with the EME gang or other southern
California Latino gangs (Valdez, 2009, p. 41). Sureno gang members will also associate
with the color blue and are often seen wearing blue clothing or carrying blue bandanas
(Shelden, Tracy, & Brown, 2001).
Rafael (2007) states that in 1957, Luis “Huero Buff” Flores, a member of the
California street gang Hawaiian Gardens, developed the idea of a super gang while
housed in Deuel Vocational Institute (DVI) located in Tracy, California. Along with
Flores, it is believed that a total of 13 Latino inmates who were active street gang
members originated the Mexican Mafia. These Latino gang members were from different
neighborhoods in the Los Angeles area (Valdez, 2009). Rafael (2007) explains that DVI
10
was where the “worst of the worst” juvenile offenders were sent and treated as adults in
hopes that the older and even more hardened inmates would adjust their attitude and put
them in their place. Rafael continues on to explain, “As it turned out, Flores and the
original members of EME became the oppressors rather than the victims the California
Department of Corrections (CDC) had hoped for” (p. 274). These local gang members
banded together in prison to protect themselves from other gang members, inmates, and
prison staff. It was this perceived need for protection from another group that acted as a
catalyst for the gang’s formation (Valdez, 2009).
Mexican Mafia gang members operate both inside and outside the prison walls
usually in the southwest United States. The Mexican Mafia is responsible for a great deal
of narcotics smuggled into the prisons that they control (Jackson & McBride, 1991).
Rafael (2007) explains how one correctional officer stated, “We don’t run the prison.
They do (EME). We’re not the enemy, we’re just the referees” (p. 33). While all prison
gangs thrive on extreme and brutal forms of violence, the Mexican Mafia members are
notorious for their willingness to murder rival gang members and their peer members
who do not follow orders (Valdez, 2009). According to Valdez (2009), once this gang
formed, victims of its illegal activities tended to band together for protection. As a result,
more prison gangs were formed (p. 41).
Since the Mexican Mafia consists of Latino street gang members from southern
California, or Surenos, the Norteños, who are the enemy of Surenos, historically occupy
the areas of northern California (Shelden et al., 2001). At the correctional training facility
11
in Soledad, California, a second Latino prison gang known as La Nuestra Familia (NF)
was formed by other Latino gang members in 1965 to protect northern California Latino
inmates from the Mexican Mafia (Valdez, 2009). According to Fuentes (2003), Robert
“Babo” Sosa, along with other Latino gang members founded the gang. Furthermore,
members of Nuestra Familia refer to the gang not as a gang but as an organization, which
further demonstrates the level of sophistication that these inmates have (Fuentes, 2003).
As one expert states, “The Nuestra Familia, unlike its mortal enemy the Mexican
Mafia, has a written constitution and an identified rank structure from warrior to general”
(Jackson & McBride, 1991, p. 52). In addition to the gang’s constitution, the Nuestra
Familia shows its sophistication and dedication with its oath: “If I go forward, follow me.
If I hesitate, push me. If I am killed, avenge me. If I am a traitor, kill me” (Fuentes, 2003,
Preface). Nuestra Familia members have strict recruitment guidelines and a well
respected and established member must sponsor a new recruit. In addition, it is required
that a new member must “spill the blood of the enemy to prove their loyalty” (Fuentes,
2003, p. 2). This practice is commonly referred to as the “blood in, blood out ritual”
(Fuentes, 2003, p. 2).
Street gang members who pledge allegiance to the Nuestra Familia are known as
Norteños. Norteños associate with the color red and often wear red clothing and carry red
bandanas (Shelden et al., 2001). Moreover, Norteño’s adopted the number 14
representing the 14th letter in the alphabet: “Ñ.” This corresponds with the Spanish word
12
“EÑE” and has represented and identified Norteño’s since the gang was created (Valdez,
2009, p. 41).
According to Fuentes (2003), in 1965, EME member Robert Salas stole a pair of
prison issued boots from EÑE member Hector Padilla. When Padilla found Salas wearing
the boots, an argument ensued during which Padilla was stabbed several times and died.
It is from this event that the war between the Mexican Mafia and the Nuestra Familia
started and still exists today (p. 3). The battle between Sureno and Norteño gang
members has long been an epic struggle between the two gangs. An historical line has
been drawn through the city of Bakersfield, California. Any Latino gang member who
lived south of the city was known as a Sureno, and any Latino gang member who lived
north of the city was known as a Norteño (Valdez, 2009). Valdez (2009) continues on to
state that because violence between Norteno and Sureno gang members were so violent
and frequent they were segregated from each other:
When members of these two prison gangs came in contact, there was often violence.
Both gangs began attacking one another wherever and whenever the opportunity
presented itself. The conflict grew to such a level that by 1980, the California
corrections department began to separate gang members from these two prison gangs
by placing them at separate institutions. (p. 41)
In addition to Hispanic gangs, there is a prison gang comprised of black inmates
known as the Black Guerilla Family (BGF). According to Valdez (2009), “the BGF is the
most politically oriented of all the California prison gangs, following and espousing
Marxist Leninist Maoist revolutionary philosophies” (p. 42). The BGF is responsible for
13
the most assaults against staff inside the prison walls; inside prison, it is very structured
and organized (Jackson & McBride, 1991). The BGF was founded by George Lester
Jackson in 1966 while he was incarcerated inside San Quentin prison under the original
name Black Vanguard. The group evolved from the Black Panthers, which according to
Jackson, was not doing enough the help the needs of black prison inmates. The gang
changed the name to BGF after Jackson was killed in an escape attempt in 1971 (Valdez,
2009).
The BGF maintains an organizational structure that consists of generals, captains,
lieutenants, and soldiers. Though organized inside the prison, outside, the BGF is flawed
by splinter groups and its lack of political reasoning. Most members who are arrested or
charged with crimes see themselves as “persecuted” for political reasons (Jackson &
McBride, 1991, p. 53). The BGF commonly associates with two separate tattoos to
identify members. The first is a prison watchtower surrounded by a dragon with a quarter
moon depicted on the body. The second tattoo shows the silhouette of a rifle with a sword
lying over it to form an X and includes the initials BGF (Valdez, 2009).
Another common prison gang is the Aryan Brotherhood which consists of white
members. The Aryan Brotherhood (AB) was formed in the 1960’s for protection against
the Hispanic gangs. When the gang originally formed, it was known as the Blue Bird
Gang and then changed to the Aryan Brotherhood. The gang embraces Nazi idealism
coupled with white supremacy, making most of its actions racially motivated (Jackson &
McBride, 1991).
14
The AB is well-organized with specific leadership positions responsible for all
activities within and outside the prison system. Like all other prison gangs, AB
membership comes with a lifetime commitment (Valdez, 2009). While only allowing
white members to join the gang, the AB has loose ties with the Mexican Mafia. Both
gangs despise black prisoners and will carry out “contracts” or “hits” for each other
(Jackson & McBride, 1991, p. 54). Essentially, this establishes contract murders for hire
between the gangs against mutual enemies.
The AB tends to recruit others who already associate with racist white groups.
The more violent an individual’s behavior, the more likely he is to ascend in the
hierarchy of the gang (Jackson & McBride, 1991). The AB historically has identified
themselves with tattoos such as a cloverleaf, swastikas, lightning bolts, the number 666,
and the initials AB. In addition, any variations of tattoos that include the words “white
power” or “white pride” are commonly found on AB members (Valdez, 2009).
According to Jackson and McBride (1991), California has the largest Asian
population in the continental United States. As of now, there are no validated Asian
prison gangs. Due to the ever increasing population of Asian-American street gang
members in the prison system, it is expected that Asian gangsters will someday form a
prison gang for protection. However, as Valdez (2009) has noted, most Asian prisoners
tend to become model inmates, adapting well to the rigid rules of prison life.
15
Criminal Activity
According to Knox (1993), in 1992, a survey was conducted of law enforcement
by experts researching gangs. A total of 398 agencies responded to the survey; inside the
surveys, police chiefs gave percentages to what types of crime gang members are
associated with in their jurisdiction. Eighty seven percent believe gang members are
involved with violence. In addition, 73 % believe gang members are involved in drug
sales. Furthermore, graffiti, burglary, robbery, car theft, and drive by shootings are crimes
gangs commonly commit in any given jurisdiction (p. 193).
Street gang members need and seek recognition and one way to accomplish this is
by displaying their gang association in the form of graffiti (Jackson & McBride, 1991).
Gang members commit a variety of crime from graffiti to murder, and all of the crime
they commit is cause for great concern to the safety of our individual communities. For
example, Wilson and Kelling (1989) explain when people in a neighborhood see a gang
spray paint its initials on all of the stop signs, they decide that the gang, not the people or
the police, control the streets. The authors continue on to explain that while spray
painting signs or buildings by itself might not be a serious crime, as the symptom of a
problem, it is very serious.
In addition to petty crimes, gang members often use violence against rival gang
members to instill fear into other gangs and members of the community (Klein &
Maxson, 2006). According to experts, “murder, assault with a deadly weapon, robbery,
rape by force, kidnapping, carjacking, drive by shootings, witness intimidation and arson
16
are all typical crimes committed by gang members” (Jackson & McBride, 1991, p. 90).
One of the more common crimes gang members commit is assaulting rival gang
members. Attacking members of a rival gang can be a way to show one’s loyalty to the
gang, create cohesion in the gang, instill fear into other gang members and citizens, and
advance within the gang (Sheldon, Tracy, & Brown, 2001).
In a federal survey conducted in 1992, police departments indicated that the
crimes most frequently committed by gang members are drug crimes and crimes of
violence (Johnson, Webster, Connors, & Saenz, 1995). Gangs will often use members to
not only deal drugs but to enforce the rules of their area and to control the territory they
occupy (Mays, 1997). It has been argued that gang violence increased in certain
communities due to drug related crimes and to the constant fight for dominance over
“drug-dealing turf” (Spergel, 1995, p. 51). Some gangs possess rules pertaining to drugs.
For example, most Hispanic gangs allow the sales of drugs to benefit the gang but
maintain that using hard drugs is against gang rules (Knox, 1993). Historically drug use
has been a nexus for everything criminal in the streets, and according to Mays (1997),
68% of all gang-related homicides are drug related (p. 293). In 1991 and 1992, the city of
Los Angeles indicated that 329 (34%) and 375 (36%) of their homicides for each year
were gang-related (Spergel, 1995).
According to Spergel (1995), “If gangs were to disappear overnight, drugs would
remain a serious problem, and if drugs were to disappear overnight, gangs would still be
a serious problem. These two problems intersect and complicate each other, but there are
17
still large areas in which they are independent of each other” (p. 53). Though these two
facets of criminal activity may in some way be independent of each other, in the late
1980s, San Diego County reported having 75% of its gang members on probation for
drug related crimes (Spergel, 1995). Knox (1993) reaffirms the connection between
gangs and drugs by stating “…as gangs and crime are inextricably related it comes as no
surprise that gangs and drugs are also tied together in a complex way” (p. 189).
In addition to drug related violence, gangs often utilize firearms in the crimes they
commit. Between the years of 1979 and 1994, the use of a firearm during the commission
of a gang homicide increased from 71% to 95% (Klein & Maxson, 2006). The authors
continue on to state that the use of semi-automatic handguns in gang-related homicides
rose from 5% in 1986 to 44% in 1994. Contrary to some beliefs, “the contrast with the
present is striking. Firearms are now standard. They are easily purchased or borrowed
and are more readily available than in the past” (Klein & Maxson, 2006, p. 81).
According to Bullock and Tilley (2002), gang members carry guns for several different
reasons: partly as protection, partly as symbolism, and partly as an instrument for the
commission of violent crime.
Past Suppression Efforts by Law Enforcement
Some experts believe that in recent years, law enforcement agencies in both large
and small jurisdictions have experienced an increase not only in the amount of gangs in
their communities but gang-related violence as well. It is also believed that law
enforcement agencies must struggle to stretch diminishing resources to develop and
18
implement gang enforcement strategies (Johnson et al., 1995). Traditionally suppression
has been the favored law enforcement approach. Street sweeps are a common suppression
technique that includes arresting and incapacitating gang members, making the streets
safer for the community. It also allows law enforcement to become familiar with gang
members living in the area, and sweeps deter fringe members, or “wannabes,” from
engaging in gang-related activity (Thurman, Giacomazzi, Reisig, & Mueller, 1996, p.
280). Spergel (1995) believes “The primary focus is on the apprehension and punishment
of offenders to deter individuals and groups from engaging in crime” (p. 189). Spergel
(1995) explains the historical meaning of the suppression strategy often utilized by law
enforcement:
The traditional police suppression strategy is to quickly investigate, track, arrest, and
assist in the prosecution and conviction of gang members-especially hard-core
members or leaders- through tactics such as surveillance, stakeouts, aggressive patrol
and enforcement, follow-up investigations, the development of extensive intelligence,
and infiltration of gangs or contexts in which gangs are found, such as schools. (p.195)
Wilson and Kelling (1989) believe that foot patrol in high crime and gang - ridden
areas can prove to be effective in reducing gang crime. In addition, suppression tactics
include high visibility patrols in target areas, stopping and searching suspected gang
members or other suspicious persons the police observe, and making arrests when
appropriate (Fritsch et al., 1999) Part of the suppression of gang-related violence is
utilizing “aggressive” strategies. The concept behind aggressive tactics include making
several car stops, issuing citations, performing field interviews, checking for stolen cars,
19
and contacting suspicious persons in high crime areas (Wilson & Boland, 1978, p. 370).
Placing an emphasis on proactive enforcement has proved beneficial and in 1996 one city
found that 75% of its drug arrests came from traffic stops (Harris, 1999).
The idea that most police work is reactive, coupled with the fact that a small
number of offenders commit a disproportionately large number of offenses, is the focus
of proactive suppression tactics (Martin & Sherman, 1986). Martin and Sherman (1986)
believe that “selective apprehension of repeat offenders through proactive policing may
create three potential effects on crime: incapacitation, general deterrence, and specific
deterrence” (p. 175). The main idea behind the support for suppression tactics is “…if a
gang cannot be wiped out or destroyed, it must be neutralized, made illegal, and its
members swept up and placed behind bars out of sight” (Spergel, 1995, p. 192).
Klein (1993) believes suppression tactics will fail because while it may deter a
few members it will ultimately increase the internal cohesiveness of the group. It is also
believed that suppression tactics will force gang members into areas of a city with lesser
law enforcement presence. Essentially then, gang violence is only moved to another area
instead of being eradicated (Fritsch et al., 1999). Hagadorn (1988) states that suppression
is “…of the iron fist, a strategy that moves the problem from the visibility in the
community to the invisibility of the prison” (as cited in Houston, 1995, p. 4). In addition,
the cost efficiency of saturations, sweeps, or selective enforcements have come into
question. In Los Angeles during the late 1980s, so many arrests were made that mobile
booking stations needed to be set up. Moreover, half of the arrests were not gang-related
20
members or crimes. Furthermore, the majority of the criminals were back on the street
within a few days (Spergel, 1995, p. 197).
Sherman (1990) believes that simply adding more police officers in an area
without specific direction is ineffective. Wilson and Boland (1978) believe that the police
may affect the crime rate more effectively, not by how many officers are on patrol, but
what they do on patrol instead. Sherman (1990) also states that crackdowns, or
saturations, are initially effective and have short term effects. Furthermore, statistics have
shown that crime will return to the level it was prior to saturations. Critics also argue that
suppression techniques can backfire, and fringe members can become identified formally
as a gang member (Thurman et al., 1996). According to Sahagun (1990), a decade of law
enforcement crackdowns and get tough policies has failed to curb growth of gangs and
their violence in Los Angeles and throughout Southern California, and those who
authored these ideas and concepts are now looking for more realistic and fiscally
responsible solutions. Mays (1997) believes that since gangs do not exist for only one
reason, it is unrealistic to believe that only one solution will be sufficient to address gang
problems in most communities.
Another significant aspect to suppressing gang-related crime is the growing trend
of specific gang units or proactive policing teams. In 1991, Jackson and McBride asserted
that gang violence had reached epidemic proportions and posed a serious threat to
society. Because of this violence, they suggested that the only real way to make progress
against gangs is with sophisticated, specialized law enforcement gang units, specially
21
trained in identifying and combating gang problems. In addition to police gang units, the
increase in specialized prosecutors in the District Attorney’s office has become more
prevalent. With an increase in gang-related laws comes the need for DAs specifically
aimed at targeting gang members and the crimes they commit (Johnson et al., 1995).
According to Jackson and McBride (1991), most existing gang units have specific
objectives that relate to gangs and gang-related crime. For example, most gang units will
continuously monitor gangs in their area and identify the members in each specific gang.
In addition, gang units will investigate all of the gang-related crimes, arrest gang
members, and become an expert in the field of gangs. Furthermore, members of gang
units will promote gang awareness in the community and work with other jurisdictions to
share information, intelligence, and trends in their area.
One tactic that has shown to be an effective tool in combating gang-related crime
is the use of surveillance. One agency using both uniformed and plain clothes officers to
conduct surveillance has proved beneficial in high crime areas (Johnson et al., 1995). In
1982, Washington D.C. developed a proactive unit that showed to be successful by
utilizing a combination of investigations, intelligence, and surveillance to make arrests.
The same unit also found a great deal of success in acquiring several old cars that
inconspicuously blended into the neighborhood to conduct their surveillance in. This
allowed officers the opportunity to gather intelligence without compromising their safety
or the operation (Martin & Sherman, 1986).
22
While surveillance is one way to gather intelligence, Parry (2006) believes
intelligence gathering is the cornerstone of all efforts to curb, suppress and prevent gang
activity to public safety and security of penal institutions. Gathering intelligence is a vital
part of reducing gang-related violence, and sharing this vital information is paramount in
law enforcement. The use of automated gang intelligence information systems, or data
bases, has become a large part of law enforcements’ efforts to control gang violence
(Johnson et al., 1995). Good intelligence can aid in determining a gang’s method of
operations, support structure, communication code, and other valuable intricacies of a
gang (Parry, 2006).
Most gang members have nicknames, or “monikers,” that they use to identify
themselves instead of revealing their true identity (Knox, 1993, p. 258). This presents a
problem for allied agencies who might not know a given moniker. Databases allow other
agencies to cross reference a moniker with an actual individual in another jurisdiction.
Because of this problem, federal, state, and local gang databases are formed to share
information regarding gangs in any given jurisdiction. Included in these databases are the
names of gangs, the members of those gangs, and often files will include photographs and
tattoos of members to assist in other agencies’ investigations. Parry (2006) believes that
“…the use of gang intelligence in corrections and law enforcement enables agencies to
take a proactive approach to preventing violence and solving crimes. Effective
intelligence gathering and sharing of the information can prevent gang violence against
inmates, the public and all too often opposing gangs” (p. 43).
23
On occasion, members of a gang will choose to leave a gang. When this occurs,
law enforcement will debrief the gang member and gather intelligence from them. Those
individuals who want to disassociate from a gang can provide valuable strategic and
tactical intelligence. Gang members can provide intelligence such as who the leaders of a
gang are, who the active members are, what crimes they are involved in, and where the
gang members live (Parry, 2006). An additional form of intelligence gathering is the
continually growing trend of computer mapping which can track certain crimes and the
modus operandi of each offender. Because people are creatures of habit, this allows law
enforcement to stay one step ahead by looking at an offender’s past (Fritsch et al., 1999).
In some communities, law enforcement either do not possess the necessary
resources to suppress gang-related violence, or their gang violence is so infested, that
they need more help to combat it. The police have been effective while working with
other agencies and collaborating efforts in a coordinated manner to focus on the criminal
problems of gangs (Fritsch et al., 1999). Joint federal, state, and local FBI sponsored task
forces are now operating in several areas throughout the nation to counter gang and drug
related violence (Spergel, 1995). In addition, Task Forces are designed to address gang
problems by eliminating traditional political jurisdiction. The concept behind multijurisdictional efforts is that, though gangs are dependent on a specific area or “turf,” that
does not limit the jurisdiction in which gang crimes are committed (Knox, 1993, p. 258).
Moreover, the implementation and utilization of deportation as a weapon against criminal
street gangs has been promoted by several agencies (Spergel, 1995).
24
For years there has been a constant argument regarding the best course of action
in suppressing gang-related violence. Some experts argue that community oriented
policing and awareness, coupled with intervention and prevention, possesses a better
chance to succeed than simply attacking gang-related crime and gang members with
proactive and temporary enforcement actions. Stinchcomb (2002) uses a medical analogy
in addressing society’s gang problem by stating:
The cure is not a short-term program that can be applied once and then forgotten,
analogous to taking an antibiotic for a limited time…Instead, the focus may need to be
on a long-term commitment to measures that minimize the adverse effects…and
multiple measures that deal with different aspects of the problem. (p. 37) Wilson and
Kelling (1989) explain community oriented policing as working with the good guys and
not just against the bad guys. In addition, by investigating problems in the community
and not just the crimes that occur, a partnership can grow and communities can utilize the
police as a resource to solve local problems. Spergel (1995) describes the police concept
of Community Oriented Policing as a department wide philosophical commitment that
must also involve average citizens as partners in the process of reducing and controlling
the contemporary problems of crime, drugs, fear of crime, neighborhood decay, and other
efforts to improve the overall quality of life in the community.
Examples of community-oriented police can include “…a rash of burglaries may
occur because drug dealers have found a back alley or an abandoned building in which to
hang out. In their spare time, and in order to get money to buy drugs, they steal from their
25
neighborhoods. If the back alleys are cleaned up and abandoned buildings torn down, the
drug dealers will go away” (Wilson & Kelling, 1989, p. 47).
Short (1990) believes that community-oriented policing will give officers more
skills in mediation, consensus building, and conflict resolution, making them true peacemakers, such that “police might become community advocates… rather than community
adversaries” (as cited in Knox, 1993, p. 260). In addition, Spergel (1995) believes that by
implementing community-oriented strategies, the police become a resource to the
community, aiding local residents and working with community leaders to solve
community problems. By getting to know members of the community, trust is earned by
the police, and a more open and helpful relationship can be built to solve problems in the
area. Essentially, by mobilizing the community, building community trust, educating the
community, involving the schools, and involving parent groups in community programs,
a community can begin to work with the police to solve gang problems in the area
(Spergel & Curry, 1990). Regardless of how successful community-oriented policing is
in a community, one fact does remain: A community that participates in the process also
willingly supports the efforts of the police (Weston, 1993).
Spergel and Curry (1990) believe that social intervention and prevention
programs aimed toward at-risk youths can provide positive alternatives to the gang life
style. In general, the goal of social intervention is “…to change the value of youths in
such a way as to make gang involvement less likely” (p. 296). Furthermore, some experts
have recommended that the police stop trying to eradicate gangs and instead
26
communicate with them in such a way as to demonstrate respect, acceptance, and concern
for them (Fritsch et al., 1999).
Houston (1995) found that in speaking to gang members individually, there were
a variety of topics that gang members themselves found to be more helpful in terms of
intervention. Houston found that job training coupled with counseling were the most
effective. In fact, about 75% of the gang members in the study stated that counseling
programs were effective (p.12). Thurman et al. (1996) reiterates the importance of
providing opportunity to gang members. Thurman (1996) continues on to state, “Job
training and placement can assist individuals involved with gangs to modify their lifestyle
and become productive community members” (p. 281).
Klein and Maxson (2006) explain the gang prevention program, Gang Resistance,
Education, and Training (G.R.E.A.T.). The program was designed to educate young
people as to the consequences of gang involvement. It consisted of delivering
presentations by a G.R.E.A.T. officer covering topics such as cultural sensitivity, conflict
resolution, meeting basic individual needs, drug use, personal responsibility, and setting
goals. G.R.E.A.T. was deemed a success as it showed, Klein and Maxsom (2006)
continue on to discuss that those students who participated in the G.R.E.A.T. program
showed more pro-social attitudes after the program than those students who had not been
exposed to the G.R.E.A.T. curriculum. Though the police are not thought to be
responsible for intervention and prevention, it is uncertain how effective intervention and
prevention model are. Stinchcomb (2002) believes that while there has been no shortage
27
of gang prevention and intervention projects over the years, very few have been
thoroughly evaluated, and of those that have been assessed, very few appear to be
effective.
Current Trends by Local Law Enforcement
As a crime suppression detective with the Vacaville Police Department, one of
my primary duties is to monitor, document, and investigate active gang members in the
community. Moreover, the philosophy utilized by the Vacaville Police Department is to
aggressively and proactively enforce the laws pertaining to our local gang members. The
city of Vacaville is home to about 92,000 people, and the Crime Suppression Team
(CST) contains 6 detectives and one Sergeant. One detective currently works with the
FBI Safe Streets task force. The task force supplements local agencies by prosecuting
gang members and drug dealers on a federal level.
Even with 92,000 people living within the city limits, the city still possesses a
“small town” atmosphere. One of the major difficulties that the City of Vacaville must
contend with is the fact that interstate 80 runs directly through it. Another issue the city
faces is its proximity to Fairfield, Sacramento, and Vallejo all of which are riddled with
gang members and have considerably more gang-related violence than Vacaville. Far
fewer gang members live in Vacaville than Fairfield, Sacramento, and Vallejo, and there
are far less numbers of gang-related incidents in Vacaville.
Because Fairfield borders the city of Vacaville, CST maintains a healthy working
relationship with Fairfield Police Department’s Gang Unit (FGU). Both entities possess
28
the same tenacious zero tolerance for gang violence in the communities; however,
Fairfield has more than twice the violence that Vacaville has. Though both cities are
close to the same size, Fairfield Police Department investigates several more gang-related
shootings and homicides than the Vacaville Police Department (C. Jimenez FGU,
personal communication, March 18, 2010).
Vacaville is predominantly overrun by Norteño gang members while Fairfield has
shown to house mostly Sureno gang members. Historically, gang members were
segregated geographically, however, over time and based on the constant changing
balance of power between local Norteno and Sureno gangs, one gang will often invade
the other city to commit violent acts upon a rival gang member. Because these gangs are
enemies, and their violence spills over the borders of both cities, CST and FGU readily
share information, tactics, and collaborate on several operations together to suppress gang
violence. For the obvious reason that gang members do not solely commit crime in the
city where they reside, CST and FGU work closely with each other. In addition to
working closely with FGU, CST attends monthly gang meetings with all of the other
agencies within Solano County, including the District Attorney’s Office, Probation, and
Parole. These meetings allow gang units to share information, trends, training, and tactics
to ensure that every agency is “on the same page” so to speak. These informal meetings
allow individual officers to converse and learn more about gang members in Solano
County. Moreover, local agencies can utilize their local gang databases to assist with
other department’s investigations. Local databases may contain suspect information, gang
affiliation or monikers of gang members that might be helpful in an investigation.
29
The District Attorney’s Office currently uses three Deputy District Attorneys who
are responsible solely for prosecuting gang crimes. These attorneys prosecute gang
members using gang legislature to include gang enhancements. These enhancements in
effect double the sentence length if convicted of a gang crime. This plays a pivotal role in
deterring gang members from committing crime. Facing 15 to 20 years in prison for
assault with a deadly weapon tends to change some gang members. While awaiting trial,
some members often realize that the gang lifestyle is simply not worth it, and upon
completion of the case, they drop out of a gang.
The Vacaville Police Department allows CST to be a solely proactive unit. In
other words, CST does not handle calls for service except for a significant “in progress”
call such as shootings, robberies, and other violent offenses. CST members remain on
proactive patrol in high crime and known gang areas. CST works closely with the Solano
County Probation Department as well as State Parole Agents. While on patrol, most
success comes from immediately identifying a known gang member from either previous
contacts or their database picture. This knowledge allows for quick decisive action by
CST members and leads to a great deal of contacts, detentions, searches, and arrests.
CST members also are deliberate in conducting both probation and parole
searches at the residences of known gang members. These searches can discover
information and intelligence about certain gangs or individual members, locate
contraband such as firearms and drugs, and at the very least, they remind these gang
30
members that the police are aware of their activities in order to ensure that they comply
with the terms of their probation or parole.
CST also conducts several “sweeps” annually. In the past, these sweeps would
take place four times per year and include close to 100 officers from, not only Vacaville
Police, but also allied agencies. These sweeps would consist of several small teams
instructed to conduct numerous probation and parole searches or be utilized to saturate
high crime and gang - infested areas. Since fiscal problems have occurred for the city of
Vacaville, CST now performs about nine much smaller sweeps annually that do not use
overtime units or outside resources.
Historically, sweeps have yielded a significant amount of gang-related arrests and
even more intelligence. Sweeps increase the number of enforcement units throughout the
city, and both citizens and criminals notice the effects of having significantly more units
on the street. It is believed that within the first few hours of a sweep, word spreads
quickly, and criminals flee the city in an attempt to not be detected; however, statistics
show that the overwhelming number of police units seems to confuse and distract the
criminal element throughout the day of the operation. Furthermore, sweeps have the
overpowering force to reduce gang-related incidents, calls for service, and even the
number of people on the street in the few weeks following a sweep. Essentially, sweeps
though expensive, accumulate a great deal of arrests and quiet high crime areas for a
short time after a sweep is conducted.
31
Another trend that has become increasingly more useful and popular is the
utilization of Solano County’s Immigration Customs Enforcement (ICE) Agent. ICE is
the new name for INS and assists CST with deporting illegal known gang members.
Sureno gang members are traditionally born in Mexico and travel to California at a young
age. Fairfield Police had a very organized and brutal Sureno gang known as “Calle San
Marco” (CSM) that terrorized Fairfield for years. The gang was so strong, nobody chose
to testify against them regardless of how serious the crime or strong the case. FGU began
to use ICE as a tool and started deporting CSM members out of the area and back to
Mexico. During the past three years, that FGU has been using ICE, the gang CSM has all
but disappeared. Very few members exist, and there are very few violent acts that the
gang is responsible for.
ICE is also helpful in gaining leverage over individuals who become problematic
and refuse to cooperate with the police. For example, uncooperative witnesses or
obstinate family members of gang members who happen to be living in California
illegally quickly become helpful when ICE agents are introduced to them. Some people
have frowned on the tactic to deport gang members and find it morally wrong to use ICE
as leverage over illegal immigrants; however, citizens are often reminded just how
dangerous, violent, and prevalent gang members are in the community.
CST has also used surveillance as a helpful means of combating gang-related
violence. For example, undercover surveillance allows officers to view gang members
more closely and follow their actions. This is helpful in validating gang membership and
32
observing criminal activity. After successfully surveying gang members, officers waiting
outside the area can be notified to take enforcement action. Surveillance has also been
useful in attempting to locate wanted suspects or following a wanted suspect’s associate
who may lead the police to where the suspect is hiding. Photographing members together
is also helpful when attempting to identify individuals or validating membership.
Confidential informants (CI) also play a very crucial role in assisting CST in suppressing
gang violence. Informants can help the police identify monikers and help identify
suspects in cases as well as provide information on current gang trends.
The Fairfield Police Department recently has utilized a civil injunction against
their Norteño gang members. The city essentially has a restraining order against
Norteños, and by law, they are not allowed to wear their dominant color, associate with
other Norteños, or be in certain parts of town. If any police officer readily identifies
offenders violating the order, then they are guilty of a misdemeanor and subject to arrest.
FGU believes it to be ineffective in reducing violence and sees it more as a political ploy.
It does however remind the people of Fairfield that the police are doing all they can to
fight gangs in their city.
Agencies that attend the gang meetings cite that continued diligence, proactive
selective enforcement, and a low tolerance for gang members seem to be the most helpful
tool in combating gang-violence. Essentially, working the street, contacting known and
suspected gang members, arresting them, and showing the community, both good and
criminal, that gang violence will not be tolerated seems both the popular and effective
33
way to fight gangs. Eradicating gangs will not occur overnight; however, with continued
pressure from not only gang units but all of the patrol officers as well, it is believed by
most local agencies that gang-violence can be reduced.
Stinchcomb (2002) believes that every city has a unique gang problem and to
obtain positive and effective results, gang-related initiatives must address the specific
dimensions of the problem at the local community level. More and more, it appears that
one technique will not reduce gang violence. In fact, it has become quite obvious that
local police need to remain flexible and address gang problems as they present
themselves. For example, if there is one particular gang member being investigated, the
use of surveillance will be very helpful. On the other hand, while on routine patrol, being
proactive, aggressive, and diligent in contacting gang members in high crime areas seems
reasonable. In addition, from talking with other officers from different agencies, it is
obvious that being able to readily identify gang members by name, face, and moniker
allow the police to act swiftly and attentively.
According to research and practical application by law enforcement, it is clear
that continued diligence and enforcement by the police will remain the dominant focus of
reducing gang violence. It appears that until society shares law enforcement’ s
enthusiasm for eradicating gangs, very little will change short of placing a temporary
bandage on the gushing wound that is gang violence. As the literature confirms, law
enforcement can only do so much to reduce gang violence. A full frontal assault in either
prevention and intervention or enforcement and incarceration must take place to reduce
34
gang violence. The answer to gang violence is not an easy one, but it is blatantly obvious
that until a stand is made and backed whole-heartedly by all entities of the criminal
justice system, the answer will never be found.
Summary
Based on the above information it is evident that gangs present a significant
danger and problem to communities as well as law enforcement. Therefore, the necessity
for specialized gang units to monitor, document, and suppress gang members and gangrelated crime is paramount. The literature has shown how organized and violent gang
members can be and given the opportunity their violence can shatter a community.
Historically several prison gangs have evolved to epic proportions that have not only
changed the way the police investigate, document, and charge gang members but the way
they influence the penal institutions they are incarcerated in. Prison gang members can
affect all types of communities because of the influence they have over local criminal
street gangs.
Communities can be forced to live in fear because of the power and influence
gangs have over any given neighborhood. Citizens live in fear and are helpless to take
back their communities because gangs are so violent and unpredictable. The crimes gang
members commit range from drug sales to murder and negatively affect communities as a
whole. Criminal street gangs have evolved over time and have become wise to law
enforcements tactics and techniques while investigating gang-related crime and violence.
Gang members will disregard and disrespect neighborhoods by vandalizing property to
35
symbolize they’re in charge of the area and will intimidate anyone who threatens to stop
them. In addition, citizens are reluctant to assist local law enforcement because of the
power and fear of retaliation from gang members. Law enforcement has utilized a great
deal of tactics in an attempt to reduce gang violence and the number of gangs in any
given area. Law enforcement has developed prevention programs as well as intervention
programs to try and reduce the risk of youths who might become involved with gangs.
Law enforcement officials have also attempted to saturate high crime areas with an
abundant amount of officers to deter crime and overwhelm gang members. In addition,
law enforcement has attempted multi-agency task forces and specific gang units to
monitor, document, and investigate gangs. Furthermore, law enforcement has utilized
intelligence gathering techniques to assist with documenting and investigating gang
members.
36
Chapter 3
PROJECT PROCESS
In these financially unstable times, it is important to present a cohesive manual to
better ensure law enforcement is efficiently and effectively preventing and suppressing
gang-related crime. In addition, it is vital for there to be a functioning manual that guides
a focused gang suppression unit for the purpose of obtaining grants to continue
suppression efforts against gangs in the event that budgets no longer allow for a
specialized gang unit.
Because gang members and the crime they commit are not static, it is obvious to
law enforcement that the need to maintain consistent tactics between allied agencies is
important. Given the fact that Interstate 80 is a corridor that allows gang members to
commit crimes from Sacramento to Richmond all the while passing through several
jurisdictions in and out of Solano County, it is important to share information and the
implementation of tactics from one agency to another.
Finally, as the budget crisis has shown, the safety of communities has come under
scrutiny with the release of one third of the state prison’s population, many who are
violent offenders, gang members, and career criminals. With an increased criminal
element among the populous, it is necessary to develop and implement a manual to
regulate and guide the Vacaville Police Department’s Crime Suppression Team.
37
Throughout the collection and analysis of existing literature, an abundance of
information was evaluated in the form of books, journals, and studies, all of which
address gang violence and police response. In reviewing the literature and current tactics
employed, it is evident that a formal manual is essential to ensure a uniform response to
the significant threat of gang violence.
The intention of this project was to develop a manual for the Crime Suppression
Team and implement it as soon as is practical. The idea of developing a manual was the
result of a comparative review of current laws pertaining to gangs, similar manuals from
allied police agencies, and the absence of a thorough manual to guide the Crime
Suppression Team. The idea of a manual was presented to the Sergeant of the Crime
Suppression Team and the Lieutenant of the Investigative Services Division with the
intent to more effectively run the Crime Suppression Team and allow for a unified set of
goals to direct the team.
The materials for the manual were collected from department archives,
administrative commanders, department General Orders, current and past Crime
Suppression Team detectives, allied agencies perspective and practices, past practices
utilized by the Crime Suppression Team, and current experts in the field of gangs.
To complete the implementation of the manual, final approval will be needed
from the Crime Suppression Team Sergeant, Investigative Services Division Lieutenant,
and the Chief of Police. It may be necessary to present the developed manual to those
38
executive members of the department for review on more than one occasion before final
approval is obtained.
The Crime Suppression Team Sergeant, current and past Crime Suppression
Team detectives, Vacaville Narcotic detectives, members of allied agency gang units, and
Assistant District Attorneys gave input or assisted with the development of the Crime
Suppression Team manual.
Project Product
The manual will be a comprehensive guide for Crime Suppression Detectives and
is divided into thirteen sections. Those sections are as follows:
Introduction
The first section of the manual will explain the purpose and scope of the manual.
It will also discuss who maintains the manual and the revision process.
Organization
The second section of the manual will explain the mission statement of the Crime
Suppression Team as well as the goals and objectives of the team. This section will
outline the chain of command and the structure of the unit.
Employee Conduct
This section will describe the process for commendations and discipline. This
section will clarify the rules and regulations of the manual.
39
Administrative Procedures
This section will minimally cover the hours of the Crime Suppression Team,
vacation and other time off, sick time, training, and performance evaluations.
Office Procedures
The fifth section of the manual will cover minimally the process for gang
registrations and maintaining investigative files. This section will further explain office
demeanor and the need for the collection of statistical data on a daily and weekly basis.
Automated Systems
This section will give an understanding to the various automated databases
available to detectives and the strict adherence to General Orders while utilizing these
systems.
Injured On-Duty
The seventh section of the manual will refer detectives to follow the applicable
General Orders and emphasize reporting and documenting all injuries in a timely manner.
Field Enforcement Operations
This section will explain investigating cases, identifying gang members, creating
gang packets, proactive patrol efforts, writing and serving search warrants, operational
plans, undercover operations, and use of force.
40
Firearms
This section will refer Detectives to applicable General Orders applicable to the
use and care of firearms.
Evidence
This section will cover how to handle, process, and book evidence to maintain the
integrity of the “Chain of Custody.”
Equipment
This section will minimally cover the inspection and accountability of all issued
equipment.
Vehicle Pursuits/Code 3 Driving
This section will refer Detectives to Department General Orders pertaining to
vehicle pursuits and operating vehicle in an emergency capacity.
Report Writing
The final section of the manual will explain report writing procedures including
the need for reports, types of reports, and the incidents that require a report.
Refer to the appendix to view the final product for a more elaborate and in-depth
look at the Crime Suppression Team manual.
41
Chapter 4
CONCLUSIONS AND RECOMENDATIONS
Evaluation should be an integral part of the success of this project. Evaluation
includes an assessment of the effectiveness of the Crime Suppression Team. In addition,
the manual will help determine the unified objectives of the Crime Suppression Team
based on the needs and goals of the Vacaville Police Department. This project is the
culmination of the day-to-day activities that the Crime Suppression Team encounters and
the organized efforts that the team endures. The evaluation process for this project will
continue once the manual is implemented for a period of time as to determine if the dayto-day operations are more efficient.
Prior to the events of September 11th, 2001, federal law enforcement agencies
rarely collaborated with each other on operations or shared intelligence information with
allied agencies. This manual can serve as a template to federal, state, or local agencies
that might have a need to develop a crime or gang suppression unit. The need to have a
comprehensive approach to suppressing gang violence is necessary to law enforcement.
Though there is no boiler plate template to suppressing gang crime, there is an advantage
to have law enforcement agencies collaborate efforts, share information, and understand
the history of gangs and what tactics allied agencies are utilizing to combat gang related
crime. This manual can be an effective tool when addressing the needs of an organization
and gang-related crime.
42
One of the limitations to this project is the fact that the area researched was
limited to Solano County and is primarily intended for local law enforcement only. In
addition, there were limited agencies involved in this project and obviously gangs spread
throughout the nation. Another limitation to this project is the fact that no gang members
were interviewed for their opinion on what law enforcement does effectively in
suppressing or deterring gang members from committing crime or how gangs are
changing to combat law enforcement’s efforts.
An additional limitation to this project is the literature review of gangs. The
literature review was purposely limited to prison gangs only because of their history and
influence on local street gangs. Based on a plethora of information regarding gangs,
coupled with the fact that there are virtually hundreds of gangs in the United States, it
would not be feasible to compile a complete literature review regarding all of the
information about gangs and the criminal activity they engage in. Because of the vast
information available, gangs such as Crips, Bloods, and Outlaw Motorcycle Gangs were
not included in this project.
The city of Vacaville is surrounded by several state prisons including: San
Quentin, Folsom, Duel Vocational Institute (DVI), California Medical Facility (CMF),
and Solano. Prison gangs have a great deal of external influence on local gangs in the
area and because Vacaville is situated between Sacramento and the rest of the bay area,
the influence from prison gang members is easily inserted into local gang members.
43
One of the negative aspects to suppressing gang related crime in Vacaville is the
fact that Vacaville sits along the Interstate 80 corridor and is surrounded by Interstates
680, 580, 5, 505, 37, and 101. Essentially, Vacaville is the entrance to the Sacramento
Valley, Bay Area, and the North Bay. Information, orders, and new tactics from prison
gang members can travel by other criminal street gang members to gang members in the
city of Vacaville easily and allows several egress points and opportunities to elude local
efforts by the police.
44
APPENDIX
45
APPENDIX
PROPOSED TRAINING MANUAL
Vacaville Police Department
Core Values
 Integrity in Our Actions

We show respect for ourselves, our organization, and our community
by always acting in a manner above reproach both in public and with
each other.

Our actions match our words, and we hold each other and ourselves
accountable to our core values.
 Service to the Community

We understand the support we receive from the community is not to be
taken for granted and is earned through professionalism and honesty in
the safety and service we provide.

We take ownership of problems brought to our attention and strive to
solve them with all available resources.
46
 Ethical Conduct and Decision Making

Public trust is earned through strict adherence to the Law Enforcement
Code of Ethics.

We make decisions consistent with our values and in the best interest
of our organization and the community.
 Respect for Human Dignity

As members of the Vacaville Police Department, we treat each other
and everyone we contact with decency and respect.

While maintaining personal safety, we remember that we often meet
individuals on their worst days and strive to preserve their dignity.
47
Crime Suppression Team Manual
Table of Contents
Introduction
Section One
Organization
Section Two
Employee Conduct
Section Three
Administrative Procedures
Section Four
Office Procedures
Section Five
Automated Systems
Section Six
Injured on Duty
Section Seven
Field Enforcement Operations
Section Eight
Firearms
Section Nine
Evidence
Section Ten
Equipment
Section Eleven
Vehicle Pursuits/Code 3 Driving
Section Twelve
Report Writing
Section Thirteen
48
SECTION ONE
INTRODUCTION
49
INTRODUCTION
Purpose of the Manual
This manual establishes policies, procedures, and regulations which will govern the
Vacaville Police Department’s Crime Suppression Team. The manual will provide
supervisors and employees with uniform information concerning policies developed for
the direction and compliance of Crime Suppression Detectives. Revisions and
supplements will be issued as necessary. Based on the length of several Vacaville Police
Department General Orders, coupled with the fact that Detectives can access the
department’s General Orders online as well as in hardcopy form in the office, individual
General Orders were not attached to this manual.
Scope
This manual addresses policies and procedures directly related to the operations of the
Vacaville Police Department Crime Suppression Team (CST).
Arrangement
This manual is divided into sections specified in the Table of Contents. The sections
address the operation of the Crime Suppression Team by various tasks, duties and
responsibilities of supervisors and detectives. The index will serve as a cross reference to
the various manual sections by specific topic or activity.
Manual Coordinator
50
The Crime Suppression Team Supervisor or his/her designee is responsible for
maintenance of the Crime Suppression Team manual.
Staff- Revisions
Active participation in the revision process by Crime Suppression Team personnel is
encouraged. Suggested revisions should be prepared in memorandum form and submitted
to the Crime Suppression Team supervisor. The Crime Suppression Team supervisor will
review the revisions, make comments, and submit them to the Investigative Services
Division Commander for review. Manual revisions will be sent to all Crime Suppression
Team personnel and will become effective upon receipt.
51
SECTION TWO
ORGANIZATION
52
ORGANIZATION
Mission
The mission of the Vacaville Police Department Crime Suppression Team is the
effective, efficient, and proactive investigation and suppression of gang-related activity in
the City of Vacaville. Additionally, the Crime Suppression Team shall provide education
and assistance to community groups and act as a liaison with both the California
Department of Corrections and Rehabilitation and the Solano County Department of
Probation.
Organization Structure
The Crime Suppression Team is assigned to the Investigative Services Division and is
supervised by the Crime Suppression Team Sergeant under the command of the
Investigative Services Division.
The Crime Suppression Team is comprised of a Sergeant and seven Detectives. The
Sergeant will function as the supervisor and will be responsible for the Team’s day-today operations.
Goals and Objectives
The Vacaville Police Department Crime Suppression Team’s goal is to effectively
monitor local gang members and their activity as well as investigate gang-related crimes
within the City of Vacaville. In addition, the Crime Suppression Team will:
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A. GANG INVESTIGATION AND SUPPRESSION
1. Conduct ongoing gang related investigations, culminating in the arrest and
prosecution of violators through proactive and creative strategies.
2. Develop and provide up-to-date criminal intelligence data for the Vacaville
Police Department regarding local gangs in the city, members of those certain
gangs, and the crimes associated with those gangs.
3. Develop and maintain gang registrant information as it pertains to section
186.30 of the California Penal Code.
4. Develop and maintain a close working relationship and atmosphere of shared
information with all Sections of the Department, Solano County Probation,
California State Parole, the District Attorney’s Office, and any other allied
agencies.
B. COMMUNITY-ORIENTED POLICING AND PROBLEM SOLVING
1. Be used as a resource tool to address problems identified through CompStat.
2. Assist the Field operations Division, Investigations Section, The Narcotic
Enforcement team, and other Sections of the Department.
3. Assist the Narcotic Enforcement Team with enforcement action and serving
search warrants.
4. Develop and share expertise in certain areas, including gang expertise, parole
issues, general and specific criminal intelligence, and probation.
5. Foster a philosophy of teamwork, working in harmony with other units within
the Department.
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C. PUBLIC AWARENESS AND PRESENTATIONS
1. Develop and present public awareness programs on gang-related crimes and
trends to the community in cooperation with the Crime Prevention Unit and
Crime Free Multi-Housing.
2. Promote participation in neighborhood watch, downtown business
associations, and various other groups requesting assistance of the Crime
Suppression Team.
Chain of Command
The Crime Suppression Team Supervisor will designate Crime Suppression Team
personnel in order of priority who will act as the Crime Suppression Team Officer in
Charge (OIC) in their absence. In the event of absence from the office of both the Crime
Suppression Team supervisor and the OIC, the next Detective on the list will take charge
of acting OIC duties. Notification of acting OIC status will immediately be made to the
Investigative Services Division Commander.
Personnel
Personnel assigned to the Crime Suppression Team will be selected in accordance with
current departmental reassignment procedures and practices as outlined in Vacaville
Police Department’s General Order 213. (Or substitute the policy and procedures of other
respective agencies adopting this manual).
Term of Assignment
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Full-time specialty assignments will be up to six years based on employee performance.
Extensions beyond the initial first year in a specialty assignment may be made on an
annual basis for a maximum of six (6) years. At the end of each year, a recommendation
to extend an employee in a specialty assignment will be made by the employee’s
immediate supervisor and forwarded through the division commander with his/her
recommendation to the Chief for review. Decisions not to extend will be considered nondisciplinary in nature.
Refer to General Order 213.
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SECTION THREE
EMPLOYEE CONDUCT
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EMPLOYEE CONDUCT
Letters of Commendation
Letters of commendation may be issued to employees of CST in those cases where the
work performed by the employee has been of such outstanding quality as to be above and
beyond the normal work expected of an employee. Acting OIC’s who feel that an
employee or employees under their supervision have performed a task in such an
outstanding manner that they should be the subject of a special commendation, shall
prepare a memorandum to the Crime Suppression Team supervisor, setting forth the
circumstances of the task(s) performed and recommending that a letter of commendation
be issued by the Investigative Services Division Commander. The Investigative Services
Division Commander, upon receipt of such a request, will, at his/her discretion, issue a
letter of commendation to the employee(s) for inclusion in the employee’s personnel file.
The CST supervisor may also, at his/her discretion, initiate and issue a letter of
commendation to an employee who, in the supervisor’s opinion has performed
outstanding work.
Compliance with Laws, Regulations, Rules, Lawful Orders and the Manual
Employees shall obey all rules, regulations and procedures as set forth in this manual or
any other official document as it pertains to the Crime Suppression Team and its specific
or related duties.
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All employees shall obey and properly execute any lawful order issued by an OIC,
Supervisor, Crime Suppression Team Supervisor, or Investigative Services Division
Commander, or any other person in the detectives chain of command. The OIC,
Supervisor, Crime Suppression Team Sergeant, or the Investigative Services Division
Commander, or anyone acting in such a capacity, shall be held responsible for all orders
and instructions issued to those under his or her supervision and for any consequences
arising from their failure to take proper action to address a subordinate’s non-compliance
with such orders and instructions. No supervisor shall issue an order, which is contrary to
or tends to nullify any established procedure of law except when necessary in cases of
emergency. A supervisor shall be prepared to justify the issuance of such emergency
orders.
Improper Use of Badge and Identification
No employee shall use his/her badge or identification except as necessary in the
performance of official duties.
Types of Disciplinary Actions
Disciplinary action may be implemented pursuant to current department policies
following a thorough investigation of suspected misconduct. Refer to General Order 201.
Utilization of Prisoners’, inmates’, or defendants’ Services
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No employee shall arrange to utilize the services of a prisoner, inmate, or defendant with
pending charges without obtaining prior approval from the Crime Suppression Team
Sergeant or Investigative Services Division Commander.
Fraternization with Criminal Suspects
No employee shall fraternize with known criminal suspects, except during required
undercover activities.
Criminal suspects are individuals who are suspected of being or have been involved in:
1. The actual or attempted planning, organizing, financing, or commission of
criminal acts;
or
2. Criminal activities with known or suspected crime figures.
Personal Appearance
Crime Suppression Team Detectives will follow the Department Personal Appearance
Standards as indicated in General Order 202.
Discussion of Prosecution Action
No employee of the Crime Suppression Team shall make commitments to a prisoner or
his/her counsel regarding the prosecution action to be taken without the prior approval of
the Crime Suppression Team Sergeant and the Deputy District Attorney assigned to the
case.
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Refer to General Orders 200, 201, 202, and 205.
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SECTION FOUR
ADMINISTRATIVE PROCEDURES
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ADMINISTRATIVE PROCEDURES
Detective Time and Hours
Regular Crime Suppression Team Detectives will be determined by the CST supervisor.
Detectives’ work hours may change or be adjusted to meet the needs of the Crime
Suppression Team in accordance with current departmental General Orders and the
Vacaville Police Officer’s Association (VPOA) collective bargaining agreement.
1. The work hours for detectives will consist of 10 hours, four days per week.
2. Members of the Crime Suppression Team will work flexible hours depending
on caseload demands, crime trends, enforcement action needed for the
Narcotic Enforcement Team, or other divisions within the department.
Furthermore, members of the Crime Suppression Team may be required to
adjust their schedule depending on special investigative details, and in
accordance with the VPOA Memorandum of Understanding.
Overtime
It is the policy of the Crime Suppression Team to avoid the necessity for overtime work
whenever possible. In those instances when overtime cannot be avoided, prior approval
of the Crime Suppression Team sergeant or OIC will be obtained before working
overtime. The VPOA collective bargaining agreement and other labor rules will govern
such issues as cash compensation, compensatory time off, callback time and other
instances.
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Vacation Time Off
Requests will be submitted directly to the Crime Suppression Team Sergeant. Employee
requests for vacation will generally be honored; however, supervisors must consider the
workload and projected due dates before granting the vacation request.
Under no circumstance shall the Crime Suppression Team Sergeant allow staffing to
become so low as to impact the quality or quantity of the Crime Suppression Team’s
product or service. Consequently, employees may be required to schedule vacations
around periods of peak activity within the Crime Suppression Team.
Sick Leave
Employee notifications or requests will be submitted directly to the Crime Suppression
Team Sergeant. This notification shall be in accordance with Vacaville Police
Department’s general Order 207.
Annual Performance Reports
Performance evaluation reports will be prepared for the employees assigned to the Crime
Suppression Team in accordance with General Order 204. At a minimum, the Crime
Suppression Team Sergeant will keep the Investigative Services Division Commander
apprised of his/her officer’s progress within the unit on an ongoing basis.
Training
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Detectives assigned to the Crime Suppression Team will receive mandatory training as
provided by the department.
The Crime Suppression Team Supervisor may arrange for additional specialized training
for Crime Suppression Team members relating to such subjects as firearms, gang
intelligence, and entry and search techniques.
The Crime Suppression Team Supervisor will encourage all detectives to attend the
following training:
1. 40 hour Gang Awareness and Identification course
2. CNOA Annual Training Conference
3. 80 hour Interview and Interrogation class
4. PLEADS database course
Public Speaking
Employees shall obtain the approval of the Crime Suppression Team Sergeant before
publicly speaking on matters concerning the policies, investigations, or matters of the
Crime Suppression Team.
News Media Contacts
The Crime Suppression Team Supervisor may issue routine press releases regarding team
activities in accordance with department General Order 317.
Refer to General Orders 204, 207, and 317.
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SECTION FIVE
OFFICE PROCEDURES
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OFFICE PROCEDURES
Desks
Desks assigned to individual detectives will be locked whenever a firearm is in the desk,
and the detective is absent from the immediate vicinity. Desks are not to be used for
storing evidence, monies, or seized assets.
Appearance of the Crime Suppression Team Office
It is the responsibility of the Crime Suppression Team Supervisor to ensure that the
Crime Suppression Team office presents a professional, businesslike appearance. This
includes any material which might be construed to be sexually explicit, gender biased, or
racially derogatory.
Public Access to the Office
The general public will be restricted from the inner or operational areas of the CST
office, and only authorized personnel will be allowed access to working areas of the
office.
Office Files
The Crime Suppression Team will maintain, at the minimum, the following types of files:
1. Gang Registration File
2. Informant File
3. Investigative Report File
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Gang Registrations
It will be the responsibility of the Crime Suppression Team to maintain the Gang
Registrant File and to efficiently and accurately register gang members pursuant to
section 186.30 of the California Penal Code. These files will include at the minimum:
1. Current address and personal information form
2. Street Terrorism Enforcement and Prevention Act (STEP ACT) Form
3. Current photograph of registrant including all tattoos
Investigative Files
Investigative files will be the responsibility of the lead Detective assigned to the case.
These files will be maintained in the office. The following procedures apply to
investigative files.
Access to Files
Access to the files is a matter of office policy; however, in determining access, several
factors should be considered:
1. The more individuals allowed access to the files, the more likelihood of misfiling,
loss of documents, dissemination of an original document, and unauthorized
dissemination
2. The need for after-hours access
3. The number of employees in the office
4. With whom the office is shared
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Release of Information
The Crime Suppression Team’s investigation reports contain information that, if misused,
can compromise an investigation or lead to harm to the individuals involved in the
investigation. The Crime Suppression Team Supervisor will ensure that all employees in
his/her office are aware of the sensitive nature of investigative information to make
certain that it is not used unlawfully or made available to unauthorized persons. Penal
Code Section 11140 prescribes penalties for unauthorized furnishing and receiving of
certain criminal records of information. Confidential information is not subject to access
by the individual to whom it pertains, with the exception of those instances listed below.
Confidential information is defined, in part, as information gathered by a law
enforcement agency for investigation of criminal activity or for law enforcement
purposes.
Access to investigation reports is limited to:
1. Defendants and their attorneys through appropriate legal processes
2. Members of criminal justice agencies on a “need-to-know” basis
Government Code Section 6254(f) specifies that certain information can be released to
anyone upon the request unless release of information would endanger the safety of a
person or the successful completion of the investigation. The law does not require the
Crime Suppression Team to show the press or public any investigation report.
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Reporting Requirements
Crime Suppression Team Detectives will maintain and update daily statistics and record
an overview of daily accomplishments. These statistics will include but are not limited to:
1. Felony arrests
2. Misdemeanor arrests
3. Probation searches
4. Parole searches
5. Parole violations
6. Agency assists
7. Search warrants
8. Gang awareness presentations
9. Community Safety Ordinances written
10. Intelligence reports and gang registrations
The Crime Suppression Team Supervisor will submit weekly activity reports to the
Investigative Services Division Commander. The report will include information on
arrests, search warrants, intelligence gathered, agencies assisted, and public appearances.
The Crime Suppression Team Supervisor will submit monthly activity reports which
reflect the activities of the Crime Suppression Team for that particular month.
On an annual basis the Crime Suppression Team Supervisor will submit a report
summarizing the year’s events for the Crime Suppression Team.
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SECTION SIX
AUTOMATED SYSTEMS
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AUTOMATED SYSTEMS
Computer Use
Members of the Crime Suppression Team will utilize department computers in a
professional manner at all times and in accordance with General Order 704.
Investigative Databases
Members of the Crime Suppression Team will have access to the California Law
Enforcement Telecommunications System (CLETS). The Crime Suppression Team
Supervisor will facilitate the obtaining of a password for incoming detectives and shall
ensure that the employee is adequately and competently trained in its use.
Crime Suppression Team detectives will routinely have access to the following
specialized databases:
1. Cal-Gangs
2. CLETS
3. California DMV Database
4. US DMV Database
5. The National Crime Information Center
6. The California Department of Parole Supervised release File
7. California Restraining Order File
8. Cal-Photo
9. California department of Correction PLEADS
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10. California Wants/Warrants Database
11. Solano County Probation CASE File
Refer to General Order 704.
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SECTION SEVEN
INJURED ON DUTY
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INJURY ON DUTY
All members of the Crime Suppression Team who are injured in the line of duty will
strictly adhere to General Order 207.
Refer to General Order 207.
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SECTION EIGHT
FIELD ENFORCEMENT OPERATIONS
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FIELD ENFORCEMENT OPERATIONS
Investigating Gang-related Crimes
Members of the Crime Suppression Team will investigate all gang-related crimes
occurring within the city of Vacaville. While on duty, members of the Crime Suppression
Team will respond to the scene and upon arriving take over command of the
investigation. If a gang-related crime occurs on the team’s off-duty time, members are
subject to call out to investigate the incident.
Identifying Gang Members
Upon contacting or investigating potential gang members or associates, the following
criteria shall be utilized to determine the level of gang membership for any particular
gang.
1. Self-admittance into a gang
2. Identified by a reliable source
3. Identified by an unreliable source
4. Contact with known gang members in gang-related areas
5. Arrested with known gang members
6. In possession of gang-related clothing, tattoos, hair style, slogans, or signs
It is the policy of the Crime Suppression Team that at least two (2) of the above criteria
are present to validate a person as either a member or associate of a gang.
Gang Packets
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As directed by a Deputy District Attorney, the Crime Suppression Team will author gang
packets on all gang members arrested for gang-related crimes. Packets should include at a
minimum the following information.
1. Original arrest report
2. The arrested individual’s criminal history
3. All gang-related contacts (including allied agency contacts)
4. History of the gang
5. Two (2) approved predicate cases from the gang
6. Detectives resume including training
7. Detective’s synopsis of the case
8. Detective’s professional opinion as to why the crime is gang-related and how it
furthers the gang
Detectives will complete the packet and submit a copy to the Solano County District
Attorney’s Office in preparation for any judicial hearings.
Proactive Patrol
While on duty and not assigned to assist another division within the department, members
of the Crime Suppression Team will remain on routine proactive patrol in high crime
areas and sections where gang members are often present. Members of the Crime
Suppression Team will thoroughly investigate all suspicious activity and take aggressive
enforcement action when applicable.
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Search and Arrest Warrants
It is the policy of the Crime Suppression Team that obtaining and serving search or arrest
warrants by the Vacaville Police Department personnel shall be done in a professional
manner with adherence to legal procedures and requirements. Concern and respect for the
civil rights and dignity of those persons and their property upon which the warrants are
served or with whom the detectives come into contact during the service are required of
department personnel.
All search and arrest warrants shall be presented to the Crime Suppression Team
supervisor or his/her designee for review prior to judicial review. Upon review by the
Crime Suppression Team Supervisor, the search warrant will then be subjected to a
second review by any member of the supervisory staff and then a Deputy District
Attorney for review. These two levels of review shall occur prior to the warrant being
presented before a magistrate.
Presence of Non-Enforcement Personnel During Investigations
Non-peace officer personnel will not be allowed to accompany detectives during any
CST search or arrest activity unless approved in advance by the Crime Suppression Team
Supervisor. Non-sworn personnel, including auditors, may be allowed access to the crime
scene only after the area has been secured by law enforcement personnel.
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The Crime Suppression Team Supervisor shall notify the Division Commander and the
Department’s Public Information Officer (PIO) prior to allowing media to accompany
CST personnel on any enforcement activity.
Pre-Warrant Preparation
Prior to initiating the service or a search or arrest warrant, CST personnel shall make
every effort to obtain accurate identifications and descriptions of suspects and premises
by watching the location(s) in question prior to the pre-warrant service briefing. When
possible, the pre-warrant service preparation should include but not be limited to
photographs, sketches, and/or videotape recordings of the location.
Prior to the initiation of a search or arrest warrant, the CST supervisor or his/her
designee, shall complete and include a Vacaville Police Department Critical Incident and
Warrant Service Risk Assessment, which will be included in the operation order, and
approved through the appropriate chain of command.
Preparation of Affidavits for Search and Arrest Warrants
In preparing reports and affidavits on which warrants will be based, the affidavit shall
take all steps necessary to ensure accurate and complete information. When an affidavit is
prepared and the warrant signed by a magistrate, a copy of the affidavit, the search
warrant, and the search warrant return shall be placed into the case file.
In the event that the search warrant is not executed within the ten (10) day requirement,
the warrant need not be filed and can be destroyed.
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Operational Plan
Prior to conducting field enforcement operations, such as search or arrest warrants
service, undercover operations, surveillance, or other operations, the Crime Suppression
Team Supervisor shall, when practical, ensure that an operation plan is completed and
distributed to all participating personnel and the radio dispatcher. Prior to the operation,
the operational plan will be reviewed and approved by the CST supervisor. The CST
supervisor shall sign and date the operation plan after review and approval. The
operational plan will include:
1. Case detective, case number and date
2. Type of investigation (search warrant, arrest warrant, surveillance)
3. List of personnel, radio call signs, division assigned, vehicle assignment
4. Suspect’s name and description
5. Location
6. Suspect’s vehicle (make, model, color, license number)
7. Undercover officer description
8. Arrest signal (visual and verbal)
9. Radio frequency and/or operating channel
10. Potential threats (armed, guns, dogs, fortifications)
11. Special instructions
12. Maps, sketches
13. Required equipment
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14. Location of nearest hospital
15. Phone numbers of local police department or sheriff’s department
16. Contact person/phone number for closest local SWAT team
Whenever possible and appropriate, a uniformed officer should be present during the
arrest/search warrant operation.
Pre-Operation Briefing
Prior to field enforcement actions such as service of arrest or search warrant, a briefing of
all personnel involved shall be conducted by the Crime Suppression Team Supervisor,
case detective, or his/her designee who has thorough knowledge of the case. This briefing
will include a review of the operational plan, assignments of duties, thorough
identification and description of the suspects and premise, and identification of all agents
and officers who will participate in the operation. Photographs of suspects and premises
should be available.
If patrol units are to be used in security or backup roles, those officers must also be
briefed, in the field if necessary, so that they are aware of what is to take place and of the
identity of the detectives and officers involved.
Emergency or specialized equipment shall be organized and detailed on a “case-by-case”
basis.
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Undercover Agents
During the course of an investigation, it is strongly recommended that the case detective
and the undercover officer be separate individuals. However, in the unlikely event that
this occurs, it must be approved by the Crime Suppression Team Supervisor and the
Investigative Services Division Commander. If unavoidable, while the case detective is
acting in an undercover role, the case agent responsibilities will be assumed by the Crime
Suppression Team Supervisor or temporarily reassigned by the supervisor to another
detective.
While in an undercover situation, detectives will carry their firearms on their person at all
times.
Debriefing
At the conclusion of the field operation, such as a search or arrest warrant, a debriefing
will be conducted. All personnel who participated in the operation should be present
during the debriefing.
Dress and Identification
Detectives effecting arrests or serving arrest or search warrants shall wear ballistic body
armor, ballistic helmets, and tactical vests during the initial stage of the enforcement
action (building entry) unless prior supervisory permission has been obtained.
Once the enforcement area has been secured, detectives may remove their body armor
and ballistic helmets during the search portion of an operation.
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Carrying Handcuffs
When on duty, all Crime Suppression Team Detectives shall be equipped with traditional
metal handcuffs in good working condition. These handcuffs shall be carried on the
detectives’ person or in a position to be readily accessible to the detectives, except when
operating in an undercover capacity.
Arrest, Handcuffing and Control of Suspects
No detective shall arrest or attempt to arrest a suspect unless accompanied by another
detective or law enforcement officer, except in unusual cases. All arrested suspects shall
immediately be handcuffed with their hands behind their backs and searched for
weapons. When arresting and handcuffing suspects, detectives should utilize proper arrest
and control techniques. All suspects shall be thoroughly searched as soon as possible and,
when practical, by appropriate gender. If a suspect is injured during an arrest, then
detectives will proceed with the handcuffing of the suspect. As soon as possible, medical
assistance will be provided to the injured suspect. The Crime Suppression Team
Supervisor, or any supervisory personnel, should be notified of the injured suspect as
soon as possible. The investigation report will reference the injury and any medical
treatment administered. This only applies if the suspect was injured as a result of an
arrest. Any claim of an injury at the time of arrest will be documented in the arrest report.
When a residence, structure, or room is being searched for evidence, the Crime
Suppression Team Supervisor, or the responsible case detective, will direct the evidence
collection activities and assign other detectives and officers to maintain custody of
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prisoners while the search is in progress. Detectives assigned to guard or maintain
custody of prisoners shall be responsible for maintaining continuous control of prisoners
until they are released, turned over to a transporting officer, or turned over to a custodial
facility after booking. In an effort to maintain a high degree of officer safety while
maintaining custody of prisoners, detectives shall check all areas within reach of the
suspects for weapons.
Whenever an arrest has been made at a residence and the adult members are to be
removed for booking, the responsible case detective or the Crime Suppression Team
Supervisor will ensure that arrangements are made for the care of minor children and
animals. These arrangements will be documented in the investigative report.
In the event an animal has to be destroyed during an enforcement action, arrangements
will be made for the disposal of the animal and this action will also be documented in an
investigative report.
Use of Force
During the course of their duties, Crime Suppression Team Detectives shall use
reasonable force as outlined in General Order 500. This policy shall provide guidelines
for the use of restraints, chemical agents, impact weapons, electronic control device
(taser), and less than lethal force applications.
Photographs
Photographs taken during an investigation are evidence and shall be treated accordingly.
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1. A photograph of all persons arrested at the scene.
2. A photograph of all persons detained at the scene.
3. Photographs of all person reported injured showing the location and, to the degree
possible, the nature and extent of the injury.
4. Photographs of any evidence seized in its location prior to actual seizure.
5. Photographs of any damage caused to any structure, vehicle, or other objects
which may have occurred during the course of enforcement operation.
Exceptions to these guidelines require approval of the Crime Suppression Team
Supervisor.
Search and/or Arrest of Juveniles
The Supervisor or responsible case detective at the scene will determine if juveniles
present at an arrest or search warrant should be detained, arrested or searched.
Joint Enforcement Operations
Crime Suppression Team Detectives participating in joint enforcement operations with
federal or local agencies shall at all times conduct themselves in compliance with
department General Orders. If detectives, while working with other law enforcement
agencies, find that officers are conducting themselves in such a manner or performing
their duties in such a way that it is in conflict with department General Orders, rules or
regulations, then the detective will, whenever possible, notify a supervisor of the conflict
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before continuing in the assignment. If unable to contact a supervisor, then the senior
detective at the scene shall terminate the Crime Suppression Team’s participation.
Reporting of Incidents
In the event of a mistaken arrest, entry into the wrong premise or alleged misconduct on
the part of a Crime Suppression Team employee, the responsible Crime Suppression
Team supervisor or senior detective on scene will report the circumstances of such
incident to the Crime Suppression Team supervisor, who will immediately notify the
Investigative Services Division commander.
Written reports detailing the circumstances of the incident will be submitted within 24
hours by the Crime Suppression Team supervisor to the Investigative Services Division
commander.
Statements and Admissions of Suspects
Detectives shall attempt to obtain statements and admissions from all suspects; whenever
possible, the statements or admissions should be recorded. Crime Suppression Team
detectives will give the Miranda warning to all suspects in compliance with case law.
Mirandized statements or spontaneous statements made by suspects outside Miranda will
be documented in the investigation report.
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Local Agency Notification
It is the policy of the Crime Suppression Team that local law enforcement agencies or the
appropriate regional task force will be notified when detectives are conducting tactical
enforcement operations within their respective jurisdictions. The notifications will occur
prior to planned arrests and service of search warrants.
The Crime Suppression Team supervisor, or designee, shall make the notification unless
circumstances as delineated below would cause an exemption to this policy to become
necessary.
In major metropolitan areas where it is possible for activities associated with an
investigation to cross multiple local agency areas of responsibility in a short time, such as
a covert surveillance or a pursuit, local agency notification need not be made prior to
investigative activity if such notification would hamper or unnecessarily delay the
investigative activity of the detectives.
At the conclusion of the enforcement activity, the Crime Suppression Team supervisor, or
his/her designee, shall make an exit notification to advise the local agency of the event’s
termination. Should the enforcement activity result in a noteworthy incident (large
seizure, arrests of numerous persons, etc.), this information shall likewise be conveyed to
the local agency.
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Purchase of Evidence
When possible, undercover purchases made with department funds will be made by
Crime Suppression Team detectives. Other peace officers may purchase evidence with
department funds under the direction and supervision of Crime Suppression Team
personnel if the investigation so dictates. The purchase of evidence or contraband by
other than law enforcement personnel shall require prior approval from the Crime
Suppression Team supervisor.
When Crime Suppression Team detectives, other law enforcement officer or informants
are utilized in a purchase of evidence, they will be under the direct control and
observation of witnessing enforcement officers.
When funds are to be used in the purchase of evidence, the denominations, serial
numbers, and series shall be recorded before going into the field. These numbers, from
the funds actually expended, will be included in the investigation report covering the
transaction. When funds are photocopied, a simple reference to the photocopy is
sufficient. Photocopies of the funds expended will be placed in the case file.
When informants are utilized for undercover purchases, except when the purchase is
made for the purpose of obtaining a search warrant or to establish the informant’s
reliability, every effort should be made by the informant to introduce a detective or other
enforcement officer to the suspect. Direct detective-suspect contact should be the
objective of the undercover operation.
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The payment of the undercover funds to a suspect in advance of receipt of contraband
(“fronting money”) should be avoided. In those instances where funds are advanced, prior
authorization to do so must be obtained from the Crime Suppression Team supervisor.
Use of Wireless Transmitters
Wireless transmitting equipment is a communications tool to provide for the safety and
protection of those involved in undercover investigations in addition to the gathering of
evidence for court proceedings. Wireless transmitting equipment shall be worn by Crime
Suppression Team personnel in undercover investigations.
Exceptions to this section require prior approval of the Crime Suppression Team
supervisor. Examples of exceptions are:
1. The subject of the investigation has been reported to search for transmitters or
weapons.
2. The subject has been reported to operate radio counter-surveillance devices such
as scanning receivers.
As with any equipment, the wireless transmitter is not completely reliable. Therefore, it is
the responsibility of the case detective or his/her designee to ensure that the equipment is
operable when issued and that other forms of visual and audio communications are
planned and utilized as back-up. These may include, but are not limited to, the use of
foot-operated microphones in undercover vehicles, cellular telephones, and pre-arranged
visual signals.
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The case detective shall determine if an informant, while meeting suspects, should be
equipped with wireless transmitting equipment. The case detective will be responsible for
safeguarding such equipment from damage and/or loss and for the submission into
evidence of any taped recordings made.
Recording from Wireless Transmitters and Telephone Contacts
Every effort shall be made to record all undercover contacts made by telephone or while
wearing a body transmitter. The decision not to record any contact will be made by the
Crime Suppression Team supervisor.
Case Assignment
Detectives assigned to the Crime Suppression Team will:
1. Develop their own cases through field contacts, informant development, criminal
intelligence, and direct covert/undercover operations.
2. Be referred cases by the public and by other sections of the department and other
agencies. These referrals will be reviewed by the Crime Suppression Team
supervisor or his/her designee and assigned to a detective on a priority basis.
3. Review all potentially gang-related cases directly or indirectly related to ongoing
investigations or criminal intelligence for possible additional information.
4. Be responsible for assisting the other support sections, Field Services, and other
special investigative projects at the direction of the Investigative Services
Division commander.
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Call Out Guidelines
All Crime Suppression Team employees to whom a cellular telephone have been issued
are required to have the phones on their person at all times. The Crime Suppression Team
supervisor and Investigative Services Division commander require their employees to
keep their phones active during off duty hours. Crime Suppression Team detectives will
be available for call out 24 hours a day to assist with gang-related cases. Requiring an
employee to keep his/her phone turned on does not, in itself, constitute standby duty. Call
outs may be made by the arresting officer, the on-duty patrol supervisor, or the Crime
Suppression Team supervisor.
The Crime Suppression Team will respond for the following types of cases:
1. Suspects in custody for any crime possibly gang-related and for crimes punishable
under 186.22 of the California Penal Code.
2. Crimes of violence such as stabbings or shootings where the suspect is believed to
be a gang member and the incident is apparently gang motivated. The Crime
Suppression Team will respond to these crimes whether or not the suspect is in
custody or if the victim is unwilling to cooperate with the investigation.
3. Cases which require gang-related search warrants and no officer with the
expertise is on duty.
4. Any other case where additional enforcement action is needed by other sections or
divisions within the department.
Refer to General Orders 313 and 500.
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SECTION NINE
FIREARMS
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FIREARMS
All use and carrying of firearms will be in direct obedience with department General
Order 703.
Refer to General Order 703.
Carrying Handguns and Accessories
Agents shall carry their handgun on their person at all times while performing field
duties. The handgun shall be available and secure at all times. Handguns shall be carried
in a holster at all times. Holsters, which are not approved by the department, shall be
replaced with an approved holster.
A minimum of one full magazine shall be carried on the agent’s person while performing
field duties.
While on duty, all agents shall be equipped with traditional metal handcuffs in good
working condition. These handcuffs shall be carried on the person while performing field
duties except when it is operationally impractical to do so. Additionally, during field
enforcement operations, Crime Suppression Detectives will have in their possession
department issued radio.
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SECTION TEN
EVIDENCE
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EVIDENCE
All evidence packaging and handling procedures shall be done in a department approved
manner and shall comply with department General Order 600 as well as with the
department Property and Evidence Manual.
Preparing Evidence for Submission
A. Detectives will ensure that all evidence or seized currency is properly recorded,
marked for identification, photographed in its original condition and location,
collected, and properly packaged prior to being submitted to Evidence. It is the
case Detective’s and/or the Reporting Detective’s responsibilities to ensure that
all reports are completed relating to the seizure of the evidence and currency.
B. All evidence, with the exception of firearms, will be properly packaged in an
appropriate sized envelope, Kapak plastic bag, or similar container. Each
evidence container will include investigation number, defendant name, location
seized, date and time of seizure, date for submission, a description of each
evidence item and an accurate “chain of custody.” For larger amounts of
evidence, the individually seized evidence items may be placed into a container
(Kapak, cardboard box, etc.). The container must be labeled and a “chain of
custody” inscribed and attached. Certain large single items may be properly
tagged with the required information and submitted as an individual item.
C. All controlled substance evidence properly packaged and marked for
identification will be submitted in a sealed Contra Costa County (CCC) lab
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evidence envelope. The CCC evidence envelope will include all required
information including a description of each evidence item and an accurate “chain
of custody.” It is recommended that no more than three or four items be enclosed
in each CCC envelope
The case detective or appropriate reporting detective will ensure that all
controlled substance evidence is weighed (adjusted gross weight), properly
packaged, and marked for identification. Detectives will document the weight of
the individual evidence exhibits on the property report, evidence envelope, and in
the investigative report.
Detectives will also perform a presumptive chemical analysis test on each
individual controlled substance evidence item and document the results of the test
in the investigative report.
D. All firearms will be properly tagged with the required information and booked
into evidence in an unloaded condition.
Ammunition (live and expended) will be booked separately as non-controlled
substance evidence and the envelope or container containing live ammunition will
have an attached warning label or be inscribed with a similar marking.
E. All chemical samples seized and submitted into evidence will be contained in a
proper container approved by a forensic science criminalist and/or a clandestine
lab investigator that is lab safety certified. Chemical samples will be treated and
stored as controlled substances. All chemical sample bottles and/or other
containers will be over packed with chemical resistant Kapak material and then
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hot-sealed. Such samples will then be placed in a sealed cardboard box, properly
padded so as not to prevent shock and potential breakage. All materials will be
packaged with a hazardous materials warning label.
Prior to accepting custody of money, jewelry, or other valuables, the Crime Suppression
Team supervisor shall verify the amount of money, amount and type of jewelry, or other
items of value being submitted.
Property Sheets
Pursuant to the California Penal Code, property sheets will be left at the scene of search
warrants as a receipt of items seized pursuant to the warrant. These property sheets will
have a listing of items taken from the resistance. The property sheets may be re-copied or
edited after the detectives have left the residence.
The evidence list will include: (1) a description of the evidence, (2) when and where
found, (3) who located the property, (4) weight or quantity, (5) where the evidence was
retained or booked, and (6) if the evidence is cash, jewelry, collectable coins, etc. If the
report is completed prior to analysis of a seized controlled substance, approximate weight
can be listed in the report.
Weapons seized will be listed by caliber, make, model, barrel length (if applicable), and
serial number. Detectives will also list any unusual marks or identifying characteristics.
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Evidence seized indicating ownership should be listed as “indicia of residency” or
“indicia of ownership.” The term “miscellaneous papers” should be avoided. Evidence
must be fully described.
Refer to General Order 600.
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SECTION ELEVEN
EQUIPMENT
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EQUIPMENT
Equipment accountability
The Crime Suppression Team will maintain all equipment purchased and used by the
Team. These items may include, but are not limited to: Entry Ram, Halligan Tools,
Sledge Hammers, Wireless transmitting devices, GPS tracking devices, computer
equipment, camera equipment, and other equipment. The Crime Suppression Team
supervisor may designate a primary equipment custodian to maintain the inventory of
Crime Suppression Team equipment.
Crime Suppression Team Detectives must be prepared to carry out their responsibilities
no matter what the emergency. Detectives should have immediately available during duty
hours the following equipment:
A. Department approved firearm (handgun), appropriate holster, and ammunition
holders.
B. Ammunition. Each detective will use ammunition that is approved by the
department. Extra ammunition shall be readily available.
C. Handcuffs and handcuff keys.
D. Evidence kit, to include, camera, packaging material, appropriate forms,
notebooks, pens, and evidence tape.
E. Maps of the Solano County area and surrounding counties.
F. Flashlight.
G. Protective Body Armor and Ballistic Helmet.
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H. Recording device, audio and visual.
I. Police radios.
J. Badge and identification.
K. Baton.
L. Electronic Control Device (Taser).
M. Protective gloves.
Each detective shall maintain this equipment in good working order at all times.
Equipment Inspections
The Crime Suppression Team supervisor or his/her designee, shall perform periodic
equipment inspections to ensure that all equipment items are maintained and in good
working order.
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SECTION TWELVE
VEHICLE PURSUITS/CODE 3 DRIVING
103
VEHICLE PURSUITS/CODE 3 DRIVING
Detectives will strictly adhere to General Order 315 when involved in any vehicle pursuit
and while responding to calls Code 3.
Refer to General Order 315.
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SECTION THIRTEEN
REPORT WRITING
105
REPORT WRITING
The Crime Suppression Team will use and remain current on all department forms and
report formats. Crime Suppression Team reports will be approved by the Crime
Suppression Team supervisor, and then submitted to the records section.
Report Types
There are several types of reports that may be used to report investigative activities of the
Crime Suppression Team. The type of report used will be predicated on the
circumstances being reported and the progress of the investigation. Below are definitions
of the various report types. Crime Suppression Team investigations can involve multiple
suspects, and the arrests of those suspects can occur at different times during the
investigation.
A. Opening Report
When a detective is in receipt of information that may be considered suitable for
investigation by the Crime Suppression Team, the detective will present the
information to the Crime Suppression Team supervisor for evaluation.
When it has been determined that an investigation will be conducted, the assigned
detective will prepare an Opening Report. This report is the initial report of the
investigation and shall include the following:
1. Suspect name, arrest status, personal information, address, and vehicles.
2. The initial information received which prompted the investigation.
3. The source of the information.
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4. The result of any preliminary investigations such as background checks on
possible suspects, utility checks or intelligence information, including vehicles
involved along with the registered owner information, and probation or parole
status.
5. All information and details of the investigation conducted to date.
B. Investigation Report
The investigative report is prepared on the standard reporting form. The report
details the facts of the investigation up to the date of the report. In instances where
multiple investigation reports are present in an investigation, these investigation
reports shall be identified by date of the report.
C. Closing Report
During an investigation it may be determined that an investigation can proceed no
further and that no arrests can be made. In such a situation, a Closing Report will
be submitted detailing the activities that have occurred since the last investigative
report and the reasons why the investigation is being concluded. A Closing Report
will include a summary paragraph that will summarize the entire investigation.
D. Supplemental Report
When additional information has been obtained pertinent to an investigation that
has been concluded by a Closing/Arrest or Closing Report, a Supplemental Report
will be submitted.
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E. Filing Report
When an investigation results in the arrest of a suspect and the prosecuting agency
requires a report for filing of criminal charges within the statutory 48 hours or
less, a Filing Report summarizing the investigation and arrest may be completed
with D.A. approval.
Dictation
Crime Suppression Team detectives are authorized to use dictation for routine, and/or
arrest reports. Reports documenting warrant affidavits and other sensitive information are
to be written directly by the Crime Suppression Team detectives.
Field Notes
Carefully recorded notes will help agents recall facts accurately and describe them fully.
Notes taken in the field are the basis for the Investigation Reports written later.
The following are items that should be recorded as accurately as possible in field notes:
1. The activity taking place or being observed.
2. The time of the activity.
3. Who saw the activity.
4. Who performed the activity.
5. Location of the activity.
6. Description of suspects, vehicles, and locations.
7. Weather/lighting conditions.
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8. Witness observations and statements.
Report Review
The review process of the Investigation Reports is to ensure the consistency and quality
of the reports produced and disseminated by the Crime Suppression Team. It is the
responsibility of all individuals in the review process to ensure that the reports produced
are the best possible. Levels of responsibility for the review of Crime Suppression Team
Reports are:
Report Writer- The employee who wrote the report will be responsible for reviewing it
for the above, plus format, accuracy, completeness, compliance with the law, Crime
Suppression Team policy, and standards, and elements of the offense. The report writer is
ultimately responsible for the content and appearance of the report.
Crime Suppression Team Supervisor- The Crime Suppression Team supervisor will be
responsible for reviewing the report for all of the above and the following.
A. Grammatical
1. Misspelled words.
2. Sentence fragments.
3. Run-on sentences.
4. Improper punctuation.
5. Paragraphs too long/short.
6. Poor organization.
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7. Use of police jargon.
8. Use of active voice instead of passive.
9. Writing is unclear or confusing.
B. Investigative
1. Elements of the offense are missing.
2. Details of the investigation are not in chronological order.
3. Dates and/or times are inconsistent, missing, or wrong.
4. Details are too brief.
5. Important questions/issues left unanswered.
6. Probable cause to search, seize, or arrest not articulated.
7. Inadequate detail regarding handling evidence.
8. Addresses missing.
9. Inadequate vehicle description.
10. Suspect not properly identified.
11. Insufficient description of evidence.
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