U.S.

Department of Justice
Civil Rights Division
Special Litigation Section - PHB
950 Pennsylvania Avenue, N.W.
Washington, DC 20035
Oct ober 5, 2005
Via Federal Express and U.S. Mail
At t or ney Gener al Ker r y Dr ue
Depar t ment of J ust i ce
G. E. R. S. Compl ex 48B- 50C Kr onpr i nsdens Gade
St . Thomas, VI 00802
Commi ssi oner El t on Lewi s
Of f i ce of t he Pol i ce Commi ssi oner
Vi r gi n I sl ands Pol i ce Depar t ment
#45 Mar s Hi l l Road
Fr edr i ckst ed, St . Cr oi x, VI 00841
At t or ney Dani el Mat t ar angas- Ki ng
Of f i ce of t he Pol i ce Commi ssi oner
#45 Mar s Hi l l Road
Fr edr i ckst ed, St . Cr oi x, VI 00841
Re: Uni t ed St at es Depar t ment of J ust i ce I nvest i gat i on of
t he Vi r gi n I sl ands Pol i ce Depar t ment
Dear At t or ney Gener al Dr ue, Commi ssi oner Lewi s and At t or ney Ki ng:
As you know, i n Mar ch 2004, t he Ci vi l Ri ght s Di vi si on
i ni t i at ed an i nvest i gat i on of t he Vi r gi n I sl ands Pol i ce
Depar t ment ( VI PD) , pur suant t o Vi ol ent Cr i me Cont r ol and Law
Enf or cement Act of 1994, 42 U. S. C. 14141 ( Sect i on 14141" ) . We
woul d l i ke t o t ake t hi s oppor t uni t y t o expr ess our appr eci at i on
f or t he cooper at i on and document s t hat we have r ecei ved t hus f ar
f r omt he Vi r gi n I sl ands and t he VI PD. However , as you know, we
have made r epeat ed r equest s f or and ar e st i l l awai t i ng r ecei pt of
a number of document s, such as out st andi ng pr osecut or i al opi ni ons
and i nvest i gat i ve f i l es. We woul d gr eat l y appr eci at e pr oduct i on
of t hese i t ems as soon as possi bl e i n or der t o compl et e our
i nvest i gat i on.
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To dat e, we have r evi ewed r el evant VI PD pol i ci es and
pr ocedur es and conduct ed i nt er vi ews wi t h Vi r gi n I sl ands
of f i ci al s, VI PD command st af f , a cr oss- sect i on of VI PD
super vi sor s and VI PD pol i ce of f i cer s.
At t he begi nni ng of our i nvest i gat i on, we commi t t ed t o
pr ovi di ng t he Vi r gi n I sl ands wi t h t echni cal assi st ance t o i mpr ove
VI PD s pr act i ces and pr ocedur es and ensur e compl i ance wi t h
const i t ut i onal r i ght s. Dur i ng our meet i ngs wi t h you and t he VI PD
command st af f i n Apr i l , J ul y and August 2004, we t ol d you t hat we
woul d pr ovi de i n wr i t i ng mor e speci f i cs about r ecommendat i ons our
pol i ce pr act i ces exper t s had made or al l y. I n t hi s l et t er , we
convey our r ecommendat i ons r egar di ng t he VI PD s wr i t t en pol i ci es.
I mpor t ant aspect s of our f act - gat her i ng pr ocess have yet t o be
compl et ed, most not abl y r evi ewi ng document s r el at ed t o speci f i c
i nci dent s of VI PD of f i cer s uses of f or ce. Ther ef or e, t hi s
l et t er i s not meant t o be exhaust i ve, but r at her f ocuses on
si gni f i cant r ecommendat i ons we can pr ovi de at t hi s pr el i mi nar y
st age of our i nvest i gat i on.
We hope t hi s l et t er wi l l assi st i n our mut ual goal of
ensur i ng t hat t he VI PD pr ovi des t he best possi bl e pol i ce ser vi ce
t o t he peopl e of t he Vi r gi n I sl ands. We l ook f or war d t o
cont i nued cooper at i on t owar d t hi s goal . We woul d be happy t o
pr ovi de exampl es of pol i ci es used by ot her pol i ce depar t ment s
t hat mi ght addr ess some of t he i ssues we r ai se bel ow.
I. VIPD POLICIES AND PROCEDURES
The VIPD should revise and update its policies and
procedures to be consistent and comprehensive.
Pol i ci es and pr ocedur es ar e t he pr i mar y means by whi ch
pol i ce depar t ment s communi cat e t hei r st andar ds and expect at i ons
t o t hei r of f i cer s. Accor di ngl y, i t i s essent i al t hat t he VI PD s
pol i ci es be compr ehensi ve, compr ehensi bl e, up- t o- dat e and
consi st ent wi t h r el evant l egal st andar ds and cont empor ar y pol i ce
pr act i ces.
I t i s our under st andi ng t hat t he VI PD s pol i ci es and
pr ocedur es ar e cont ai ned t hr oughout var i ous document s, i ncl udi ng
a pol i ce manual , a f i el d manual , gener al or der s and st andar d
oper at i ng pr ocedur es. The of f i ci al pol i ce and f i el d manual s wer e
adopt ed t went y year s ago i n 1985. Al t hough some pol i ci es and
pr ocedur es have been r evi sed and updat ed t hr ough t he i ssuance of
gener al or der s and st andar d oper at i ng pr ocedur es, t he maj or i t y of
t he VI PD s pol i ci es and pr ocedur es r emai n out dat ed. Mor eover ,
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t he f i el d and pol i ce manual s do not consi st ent l y i ncor por at e
subsequent changes. Si gni f i cant VI PD pol i ci es, such as t hose
r el at i ng t o t he use of f or ce, use of f i r ear ms and i nvest i gat i ons
ar e not or gani zed by subj ect mat t er i n one document , but i nst ead
ar e spr ead t hr oughout di f f er ent document s. As we di scuss i n
det ai l bel ow, sever al VI PD pol i ci es and pr ocedur es ar e
i nconsi st ent wi t h gener al l y accept ed pol i ce pr act i ces and ar e
i nsuf f i ci ent l y det ai l ed t o pr ovi de t he appr opr i at e gui dance f or
of f i cer conduct .
VI PD pol i ci es and pr ocedur es shoul d appl y uni f or ml y and
consi st ent l y t o al l Vi r gi n I sl ands pol i ce of f i cer s, whet her t hey
ar e l ocat ed on St . Cr oi x, St . Thomas or St . J ohn. We under st and
t hat sever al VI PD pol i ci es and pr ocedur es var y f r omi sl and t o
i sl and. For exampl e, t he St andar d Oper at i ng Pr ocedur e ( SOP)
f or t he I nt er nal Af f ai r s Uni t s ( I AU) f or St . Cr oi x and St .
Thomas/ St . J ohn ar e di f f er ent .
1
We under st and t hat even of f i cer
uni f or ms var y f or each i sl and. I t i s i mpor t ant f or a pol i ce
depar t ment , even one wi t h par t i cul ar geogr aphi cal boundar i es such
as t he Vi r gi n I sl ands, t o have consi st ent pol i ci es, pr ocedur es
and pr act i ces.
We r ecommend t hat t he VI PD s pol i ci es and pr ocedur es be
consol i dat ed i nt o one document f or al l t hr ee i sl ands. Al t hough
we do not pr ovi de l i ne- by- l i ne edi t s and r ecommendat i ons f or al l
of t he VI PD s pol i ci es and pr ocedur es, we have endeavor ed t o
pr ovi de t he VI PD wi t h gener al r ecommendat i ons r egar di ng gener al l y
accept ed pol i ce pr act i ces f or si gni f i cant VI PD pol i ci es and
pr ocedur es ( i . e. , use of f or ce, ci t i zen compl ai nt s,
i nvest i gat i ons, di sci pl i ne, super vi sor y over si ght and t r ai ni ng) .
We r ecommend t hat updat ed and compl et e pol i ci es and
pr ocedur es be di st r i but ed t o al l of f i cer s, and al l of f i cer s
shoul d pr ovi de a wr i t t en acknowl edgment of t hei r r ecei pt , r evi ew
and under st andi ng of al l VI PD pol i ci es. We suggest VI PD
desi gnat e an i ndi vi dual t o be r esponsi bl e f or r evi ewi ng t he
manual s and any r evi si ons or new pol i ci es t o ensur e consi st ency.
Thi s i ndi vi dual woul d al so be r esponsi bl e f or ensur i ng t hat al l
of f i cer s r ecei ve copi es of t he manual s and r evi si ons, and f or
mai nt ai ni ng copi es of of f i cer s si gned acknowl edgment s.
1
Ther e i s one I AU f or St . Cr oi x and anot her I AU f or St .
Thomas/ St . J ohn. Bot h I AUs ar e under t he super vi si on of t he
Di r ect or of t he I nt er nal Af f ai r s Bur eau. For pur poses of t hi s
l et t er , unl ess ot her wi se not ed, r ef er ences i n t hi s l et t er t o t he
I AU SOP ar e r ef er ences t o t he St . Cr oi x I AU SOP, whi ch appear s t o
cont ai n mor e i nf or mat i on t han t he St . Thomas/ St . J ohn I AU SOP.
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II. USE OF FORCE
The VIPD should revise its use of force policies regarding
the use of force by VIPD officers and adopt an appropriate
use of force continuum.
I n t he cour se of dut y, pol i ce of f i cer s ar e somet i mes
r equi r ed t o use deadl y and non- deadl y f or ce. Because t he use of
f or ce can pl ace of f i cer s, ci vi l i ans and subj ect s at ser i ous r i sk
of har m, i t i s i ncumbent upon l aw enf or cement agenci es t o ensur e
t hat of f i cer s use f or ce appr opr i at el y. Use of f or ce pol i ci es and
pr ocedur es must cl ear l y set f or t h st andar ds f or appr opr i at e use
of f or ce t hat ar e i n accor dance wi t h const i t ut i onal st andar ds.
A. Legal St andar ds Gover ni ng t he Use of For ce
Uses of excessi ve f or ce by pol i ce of f i cer s ar e vi ol at i ons of
t he Four t h Amendment and ar e anal yzed under t he Four t h
Amendment s obj ect i ve r easonabl eness st andar d. Gr ahamv. Connor ,
490 U. S. 386, 394 ( 1989) . The anal ysi s r equi r es a bal anci ng of
t he qual i t y of i nt r usi on on t he i ndi vi dual s Four t h Amendment
i nt er est s agai nst t he gover nment al i nt er est s. I d. at 396. The
cr i t er i a cour t s appl y t o assess an excessi ve f or ce cl ai mi ncl ude
t he sever i t y of t he cr i me at i ssue, whet her t he suspect pr esent s
an i mmedi at e saf et y t hr eat t o t he of f i cer s or ot her s, and whet her
t he suspect i s act i vel y r esi st i ng or at t empt i ng t o evade ar r est .
I d. ; Abr ahamv. Raso, 183 F. 3d 279, 288 ( 3d Ci r . 1999) . Lack of
speci f i c pol i cy gui dance on t he appr opr i at e use of f or ce may l ead
of f i cer s t o bel i eve t hat t hey ar e j ust i f i ed i n usi ng f or ce i n
si t uat i ons i n whi ch i t woul d be unr easonabl e or unnecessar y.
Conver sel y, uncl ear or over l y gener al pol i ci es may r esul t i n
of f i cer s r ef r ai ni ng f r omusi ng necessar y and appr opr i at e f or ce
out of an unwar r ant ed f ear of usi ng excessi ve f or ce.
The Supr eme Cour t hel d t hat deadl y f or ce i s per mi ssi bl e onl y
when a suspect poses an i mmedi at e t hr eat of ser i ous physi cal har m
t o t he of f i cer or anot her per son. Tennessee v. Gar ner , 471 U. S.
1 ( 1985) . The onl y except i on t o t hi s gener al r ul e i s t he
f l eei ng f el on r ul e, whi ch al l ows pol i ce of f i cer s t o use deadl y
f or ce t o pr event t he escape of a suspect i n cases wher e t her e i s
pr obabl e cause t o bel i eve t he suspect ei t her poses an i mmedi at e
t hr eat of ser i ous har mt o t he of f i cer or anot her , or has
commi t t ed a cr i me i nvol vi ng t he i nf l i ct i on or t hr eat ened
i nf l i ct i on of ser i ous physi cal har m. I d. ; Abr ahamv. Raso, 183
F. 3d 279, 288 ( 3d Ci r . 1999) . Yet , even i n such ci r cumst ances,
pol i ce ar e r equi r ed t o pr ovi de a war ni ng, i f f easi bl e, bef or e
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usi ng deadl y f or ce. Gar ner , 471 U. S. at 11. Deadl y f or ce i s
per mi ssi bl e onl y f or as l ong as t he t hr eat r emai ns. When t he
t hr eat i s over , t he use of deadl y f or ce must st op. VI PD s use of
f or ce pol i cy does not compor t wi t h t hese l egal st andar ds.
Accor di ngl y, as di scussed i n f ur t her det ai l bel ow, we r ecommend
t hat t he VI PD s use of f or ce pol i cy be r evi sed t o i ncor por at e
t hese const i t ut i onal st andar ds.
B. VI PD s Use of For ce Pol i cy
2
Cur r ent VI PD pol i cy i nst r uct s of f i cer s t hat t hey may use
f or ce as per mi t t ed by l aw, but t he pol i cy does not adequat el y
i dent i f y aut hor i zed weapons or def i ne key t er ms i n t he pol i cy,
such as deadl y f or ce and deadl y physi cal f or ce. The use of
f or ce pol i cy i s i nconsi st ent wi t h appl i cabl e l egal st andar ds and
does not out l i ne t he l i mi t at i ons on t he use of deadl y and non-
deadl y f or ce, i ncl udi ng de- escal at i on t echni ques.
We r ecommend t he use of f or ce pol i cy i dent i f y t he weapons
t hat ar e aut hor i zed f or use by t he depar t ment and wher e each
weapon f al l s on t he use of f or ce cont i nuum, di scussed i n f ur t her
det ai l bel ow. We r ecommend t hat t he VI PD def i ne key t er ms, such
as f or ce, deadl y physi cal f or ce, ser i ous use of f or ce, ser i ous
bodi l y i nj ur y, et c. The def i ni t i on of deadl y f or ce shoul d
i ncl ude any use of f or ce t hat i s l i kel y t o cause deat h or ser i ous
bodi l y i nj ur y i n accor dance wi t h Tennessee v. Gar ner , 471 U. S. 1
( 1985) . The l ack of cl ear and consi st ent def i ni t i ons of key
t er ms i n a use of f or ce pol i cy i s par t i cul ar l y i mpor t ant gi ven
t he cur r ent absence of i n- ser vi ce t r ai ni ng f or VI PD of f i cer s. We
r ecommend t hat t he VI PD s use of f or ce pol i cy i dent i f y any uses
of f or ce t hat ar e speci f i cal l y pr ohi bi t ed or r est r i ct ed t o
l i mi t ed ci r cumst ances ( e. g. , choke hol ds or car ot i d cont r ol
hol ds) . The pol i cy shoul d i ncl ude a descr i pt i on and t he danger s
of posi t i onal asphyxi a and t he met hods and pr ocedur es t o avoi d
i t .
We r ecommend t he VI PD use of f or ce pol i cy speci f y t hat
2
Dur i ng our t our of St . Cr oi x we r ecei ved a document
l abel ed Pr oposed Use of For ce Pol i cy, Gener al Or der 2004- 001.
Gener al Or der ( GO) 2004- 001 i s cur r ent l y bei ng used as VI PD s
Use of For ce Pol i cy. Repor t edl y, however , t he pol i cy st i l l
r equi r es t he Gover nor s f i nal appr oval bef or e i t i s an of f i ci al
pol i cy. Our obser vat i ons and r ecommendat i ons ar e based on our
r evi ew of GO 2004- 001 and, wher e appl i cabl e, t he VI PD Pol i ce
Manual , VI PD Fi el d Manual , St andar d Oper at i ng Pr ocedur es, and
ot her r el evant GOs.
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deadl y physi cal f or ce i ncl udes f or ce met hods t hat empl oy
pot ent i al l y l et hal weapons ( i . e. , f i r ear ms, PR- 24, et c. ) . Due t o
t he possi bi l i t y of deat h or ser i ous bodi l y i nj ur y f r omt he
del i ver y of bl ows t o t he head wi t h i mpact weapons, we r ecommend
t hat t he VI PD speci f i cal l y l i mi t st r i kes t o t he head wi t h i mpact
weapons, such as t he PR- 24 or f l ashl i ght s, as t act i cs of l ast
r esor t t o be used onl y when t he use of deadl y f or ce woul d
ot her wi se be aut hor i zed. The onl y gui dance t he cur r ent VI PD
pol i cy pr ovi des r egar di ng head st r i kes i s t hat t hey shoul d be
avoi ded t o t he ext ent possi bl e. ( GO 2004- 001, Sect i on 4. 2. 4. ) .
VI PD s pol i cy shoul d al so def i ne non- deadl y f or ce. We
r ecommend t hat t he VI PD s def i ni t i on i ncl ude al l uses of f or ce
beyond un- r esi st ed handcuf f i ng i ncl udi ng, but not l i mi t ed t o, t he
use of har d- hand t act i cs, Ol eor esi n Capsi cum( OC) , and st r i kes
wi t h i mpact weapons. The use of f or ce pol i cy shoul d i ncl ude
al t er nat i ves t o mor e si gni f i cant uses of f or ce, such as
emphasi zi ng announcement of of f i cer s pr esence, ver bal commands,
t he use of sof t hand t echni ques ( i . e. , usi ng hands t o escor t
r at her t han cont r ol subj ect s) and ot her de- escal at i on t echni ques.
At a mi ni mum, t he pol i cy shoul d r equi r e t hat of f i cer s use t he
l owest l evel of f or ce necessar y t o saf el y r esol ve a si t uat i on,
i ncl udi ng non- t hr eat eni ng ver bal commands and al t er nat i ve
negot i at i on t echni ques.
VI PD s use of f or ce pol i cy shoul d i ncor por at e t he de-
escal at i on t echni ques appr opr i at e t o i nt er act i ons wi t h
i ndi vi dual s wi t h ment al i l l ness or who ar e under t he i nf l uence of
dr ugs or al cohol , i ncl udi ng gui dance t o of f i cer s r egar di ng t he
si gns or sympt oms f or i dent i f yi ng such i ndi vi dual s. The pol i ci es
and pr ocedur es shoul d be r evi sed t o i ncor por at e r ecent r esear ch
and st udi es on pol i ce i nt er act i ons wi t h per sons wi t h ment al
i l l ness and how best t o accommodat e t hese i ndi vi dual s. VI PD
shoul d est abl i sh speci al r esponse t eams on St . Thomas and St .
Cr oi x, composed of at l east t wo of f i cer s who ar e speci f i cal l y
desi gnat ed and t r ai ned, t o r espond t o al l si t uat i ons i nvol vi ng
i ndi vi dual s wi t h ment al i l l ness. VI PD shoul d est abl i sh a wor ki ng
r el at i onshi p wi t h l ocal publ i c ment al heal t h pr ovi der s as a
r esour ce f or t r ai ni ng and suppor t . Whenever pr act i cal , l ocal
ment al heal t h pr ovi der s shoul d be cal l ed t o t he scene of
i nci dent s i nvol vi ng per sons wi t h ment al i l l ness so t hat VI PD
of f i cer s can ut i l i ze t hei r knowl edge and t r ai ni ng.
C. Use of For ce Cont i nuum
The VI PD s use of f or ce cont i nuum, whi ch i s i ncl uded as an
at t achment t o GO 2004- 001, i s i ncompl et e because i t f ai l s t o
addr ess and i ncl ude sever al essent i al el ement s, such as adequat e
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and under st andabl e di agr ams and f or ce def i ni t i ons, t he aut hor i zed
t ypes of f or ce and aut hor i zed weapons.
We r ecommend t he VI PD devel op a compr ehensi ve use of f or ce
cont i nuumt hat augment s and enhances a r evi sed use of f or ce
pol i cy. The use of f or ce cont i nuumshoul d be a f l ui d and
f l exi bl e pol i cy gui de t o pr ovi de ef f ect i ve and ef f i ci ent
pol i ci ng. Consi st ent wi t h t he pr act i ces of many ot her pol i ce
depar t ment s, t he cont i nuumshoul d be used t o t r ai n of f i cer s t o
consi der l ower l evel s of f or ce f i r st , whi ch pr ot ect s t he saf et y
of bot h t he of f i cer and t he ci vi l i an.
We r ecommend t hat t he VI PD s use of f or ce cont i nuumbe
r evi sed t o pr ovi de di agr ams t hat i l l ust r at e t he var i ous
descr i pt i ons of uses of f or ce t hat may be empl oyed and make t hem
consi st ent wi t h t he t er ms and def i ni t i ons out l i ned i n ot her par t s
of t he pol i cy. The descr i pt i ons of f or ce shoul d be mor e det ai l ed
and i ncl ude descr i pt i ons of how t he var i ous f or ce opt i ons may be
used, how t he var i ous appl i cat i ons of t he opt i ons af f ect t hei r
pl acement i n t he use of f or ce pr ogr essi on, and what l evel of
f or ce i s appr opr i at e i n r esponse t o di f f er ent l evel s of
r esi st ance by suspect s, i ncl udi ng de- escal at i on t echni ques and
i nt er act i ons wi t h i ndi vi dual s wi t h a ment al i l l ness or who ar e
under t he i nf l uence of dr ugs or al cohol . The cont i nuumshoul d
i ncl ude al l of t he act ual t ypes of f or ce used by VI PD, i ncl udi ng,
f i r ear ms, OC spr ay, PR- 24s, cani nes, bat ons, and any ot her use of
f or ce.
D. Speci f i c For ce Pol i ci es
We have r evi ewed VI PD s use of f or ce pol i ci es r egar di ng
speci f i c uses of f or ce and have t he f ol l owi ng comment s.
1. Fi r ear ms
VI PD pol i ci es f ai l t o pr ovi de cl ear gui dance and
compr ehensi ve pr ocedur es r egar di ng t he use of f i r ear ms. Cur r ent
VI PD pol i ci es i nconsi st ent l y r ef er t o t he t ypes of weapons and
ammuni t i on t hat ar e aut hor i zed t o be car r i ed by of f i cer s. For
exampl e, Sect i on 5. 7. 3 of t he VI PD Pol i ce Manual speci f i es t hat
t he r egul at i on ser vi ce r evol ver of t he VI PD i s a . 38 cal i ber
r evol ver , but GO 90- 1 appear s t o r evi se t hi s and speci f i es t hat
t he r egul at i on ser vi ce weapon f or t he VI PD i s t he . 9 mi l l i met er
semi - aut omat i c pi st ol or t he . 38 Speci al Doubl e Act i on Revol ver
wi t h a f our - i nch bar r el . The pol i ci es f ai l t o pr ovi de suf f i ci ent
gui del i nes f or f i r ear ms qual i f i cat i on. They f ai l t o speci f y
pr ocedur es f ol l owi ng deadl y f or ce si t uat i ons, i ncl udi ng
pr ocedur es f or r epor t i ng and document i ng f i r ear mdi schar ges. The
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VI PD f i r ear mpol i ci es do not pr ovi de i mpor t ant gui dance t o
of f i cer s r egar di ng t he appr opr i at e ci r cumst ances under whi ch
f i r ear ms may and may not be car r i ed and used i n of f - dut y
si t uat i ons.
We r ecommend t he f i r ear mpol i cy cl ear l y i dent i f y t he
equi pment of f i cer s ar e expect ed t o r out i nel y car r y and t he
appr opr i at e except i ons. The pol i cy shoul d speci f y al l f i r ear ms
and ammuni t i on t hat ar e al l owed on- and of f - dut y. The VI PD
shoul d est abl i sh a syst emof account abi l i t y f or bot h Depar t ment -
i ssued and per sonal ammuni t i on so t hat t he Depar t ment i s abl e t o
moni t or how much ammuni t i on i s used and t he ci r cumst ances i n
whi ch i t i s used. Thi s wi l l f aci l i t at e i nvest i gat i ons i nt o
f i r ear mdi schar ges.
We r ecommend t hat of f i cer s qual i f y t o use each t ype of
f i r ear mt he VI PD al l ows t hemt o car r y bi annual l y. Sect i on 3. 9 of
GO 84- 2 appear s t o al l ow of f i cer s who f ai l t o qual i f y wi t h t hei r
weapons t o r emai n i n t hei r posi t i ons f or up t o si x mont hs bef or e
t hey ar e suspended f r omdut y. We r ecommend t hat al l of f i cer s who
f ai l f i r ear ms qual i f i cat i ons on any weapon be bar r ed f r omser vi ng
i n post s t hat r equi r e t he use of a weapon unt i l such t i me as t hey
ar e abl e t o qual i f y on t he r equi r ed weapon.
We r ecommend t hat t he f i r ear ms pol i cy be r evi sed t o r equi r e
t hat al l di schar ges of f i r ear ms by of f i cer s on- or of f - dut y,
i ncl udi ng uni nt ent i onal di schar ges, be r epor t ed and i nvest i gat ed.
Cur r ent VI PD pol i cy l i mi t s i nvest i gat i ons t o i nci dent s i n whi ch
an of f i cer di schar ges a f i r ear mwhi l e act i ng i n t he capaci t y of
a pol i ce of f i cer . ( GO 2004- 001, Sect i on 4. 4. 1) . Addi t i onal l y,
VI PD pol i ce of f i cer s ar e aut hor i zed t o car r y t hei r weapons at al l
t i mes, wi t hout any l i mi t at i ons. We r ecommend t hat t he Depar t ment
devel op and i mpl ement gui del i nes and r egul at i ons f or usi ng and
car r yi ng f i r ear ms whi l e of f - dut y, i ncl udi ng pr ohi bi t i ng of f i cer s
f r omcar r yi ng a f i r ear mi f t hey ar e or have been r ecent l y
dr i nki ng al cohol .
2. I nt er medi at e For ce Weapons
GOs 2004- 001 and 91- 3 pr ovi de l i mi t ed i nf or mat i on and
gui dance r egar di ng i nt er medi at e f or ce weapons, i ncl udi ng st r ai ght
and ASP bat ons,
3
O. C. Spr ay and st un guns. The pol i ci es f ai l t o
3
Dur i ng our si t e vi si t s we wer e i nf or med t hat t he VI PD
had r ecent l y pur chased ASP bat ons and woul d be di st r i but i ng t hem
t o of f i cer s i n t he near f ut ur e. GO 2004- 001 ment i ons bat ons and
kubat ons, i n addi t i on t o t he ASP bat on. We r ecommend VI PD
- 9 -
adequat el y i dent i f y al l of t he aut hor i zed i nt er medi at e f or ce
weapons and t o pr ovi de i nst r uct i ons and gui dance r egar di ng t he
pr oper r est r i ct i ons and use of such weapons. For exampl e,
cur r ent VI PD pol i cy st at es gener al l y t hat [ o] f f i cer s may empl oy
st andar d manuf act ur ed i mpact weapons capabl e of bei ng car r i ed on
t he uni f or mdut y bel t or pl ai n- cl ot hes assi gnment . ( GO 2004-
001, Sect i on 4. 2. 4) . I n ot her wor ds, VI PD of f i cer s appear t o be
aut hor i zed t o car r y as many i mpact weapons as t hey can f i t on
t hei r dut y bel t s. Addi t i onal l y, GO 91- 3 f ai l s t o speci f y whi ch
of f i cer s or r ank of of f i cer s ar e aut hor i zed t o car r y and depl oy
st un guns and whet her car r yi ng st un guns wi l l be mandat or y or
opt i onal .
We r ecommend t hat VI PD cr eat e a separ at e and compr ehensi ve
pol i cy t hat gi ves speci f i c gui dance and r est r i ct i ons on al l
i nt er medi at e f or ce weapons, i ncl udi ng st r ai ght and ASP bat ons,
O. C. Spr ay and st un guns. Thi s pol i cy shoul d i ncl ude, among
ot her t hi ngs, wher e t hese and ot her i nt er medi at e f or ce weapons
f al l wi t hi n t he use of f or ce cont i nuum, t he ci r cumst ances under
whi ch t he i nt er medi at e weapon shoul d be used and i nst r uct i ons on
how t o pr oper l y use i t , pr ohi bi t i ons on t he use of t he weapon,
whet her al l of f i cer ar e r equi r ed t o car r y t hem, r epor t i ng
pr ocedur es, and decont ami nat i on pr ocedur es f or O. C. Spr ay.
Because of f i cer s may unnecessar i l y r esor t t o t hei r f i r ear ms i f
i nt er medi at e f or ce opt i ons ar e not avai l abl e, we r ecommend t hat
al l of f i cer s be r equi r ed t o car r y O. C. Spr ay, i n addi t i on t o t he
PR- 24 or ASP Bat on. Appr opr i at e t r ai ni ng on t he use and
depl oyment of al l i nt er medi at e weapons shoul d be devel oped and
i mpl ement ed.
3. Cani nes
The VI PD has cani ne uni t s l ocat ed on St . Cr oi x and St .
Thomas, whi ch oper at e under t he VI PD s Speci al Oper at i ons
Bur eaus. The uni t s f ol l ow t he pol i ci es out l i ned i n t he Cani ne
Cor ps St andar d Oper at i ng Pr ocedur es ( CC SOP) . However , t he
out dat ed CC SOPs wer e pr omul gat ed i n t he mi d- t o l at e 1980s and
do not r ef l ect cur r ent gener al l y accept ed pr act i ces and
pr ocedur es. The CC SOPs f ai l t o gi ve pr oper gui dance f or t he use
and pr ohi bi t i ons on t he use of cani nes. They al so f ai l t o
speci f y t he i ndi vi dual s who ar e aut hor i zed t o depl oy cani ne t eams
and t o pr ovi de oper at i onal cont r ol over t he t eamdur i ng t he
depl oyment .
devel op cor r espondi ng pol i ci es and pr ocedur es f or t he use of al l
exi st i ng and new i nt er medi at e f or ce weapons empl oyed by t he VI PD.
- 10 -
We r ecommend VI PD s cani ne pol i cy be r evi sed t o gi ve cani ne
handl er s adequat e gui dance and i nst r uct i ons r egar di ng t he use of
cani nes. The pol i cy shoul d r equi r e cani ne of f i cer s t o
speci f i cal l y announce t hat pol i ce of f i cer s wi t h a t r ai ned pol i ce
cani ne ar e on t he pr emi ses, t hat a t r ai ned pol i ce cani ne i s on
t he scene, and t hat t her e i s a r i sk t hat t he cani ne may bi t e.
Thi s compl et e announcement shoul d be ampl i f i ed, r epeat ed at l east
once, and made i n anot her l anguage, i f appl i cabl e, and t he
suspect shoul d be gi ven a r easonabl e amount of t i me t o
vol unt ar i l y sur r ender bef or e t he cani ne i s depl oyed, absent
exi gent ci r cumst ances. I f t he depl oyment i nvol ves t he sear ch of
a mul t i - l evel st r uct ur e, t he compl et e announcement shoul d, i f
f easi bl e, be made and r epeat ed on each l evel t o ensur e t hat
appr opr i at e war ni ng and oppor t uni t y t o sur r ender i s pr ovi ded. I t
i s gener al l y accept ed pr act i ce f or cani nes conduct i ng bui l di ng
sear ches f or suspect s t o be unl eashed but wi t hi n vi sual
obser vat i on of t hei r handl er s unl ess t her e ar e exi gent
ci r cumst ances.
Cur r ent cani ne pol i cy pr ovi des t hat cani nes may be used t o
pr event i mmi nent danger t o l i f e or pr oper t y or pr event escapes
f r omcust ody. Because t he use of cani nes i s a ser i ous use of
f or ce, cur r ent pol i cy shoul d be r evi sed t o pr ohi bi t t he use of
cani nes f or t he pr ot ect i on of pr oper t y. We al so r ecommend t he
pol i cy be r evi sed t o cl ar i f y t hat cani nes shoul d not be used t o
pr event t he escape of suspect ed mi sdemeanant s. We r ecommend
VI PD s cani ne pol i cy pr ovi de f ur t her gui dance on t hose si t uat i ons
whi ch ar e consi der ed i mmi nent danger t o l i f e si t uat i ons and
shoul d cr oss- r ef er ence t hese si t uat i ons t o t he use of f or ce
cont i nuum.
We r ecommend t hat VI PD r evi se i t s cani ne pol i cy t o make
cl ear t hat super vi sor y cani ne of f i cer s and cani ne handl er s can
not aut hor i ze depl oyment of t hei r own dogs, absent ext r aor di nar y
ci r cumst ances. Cani ne t eams depl oyed i n t he f i el d shoul d be
super vi sed by a non- i nvol ved cani ne super vi sor or a f i el d
super vi sor , when a cani ne super vi sor i s not avai l abl e.
4. Speci al i zed Uni t s
VI PD has t he f ol l owi ng speci al i zed uni t s: St r eet
Enf or cement Team( SET) ; Mar i ne Uni t s; and Speci al Response Team
( SRT) uni t s. These t eams per f or mdi st i nct f unct i ons t hr oughout
t he Vi r gi n I sl ands, i ncl udi ng pr ot ect i ng wi t nesses, ser vi ng hi gh
r i sk war r ant s, pat r ol l i ng hi gh cr i me ar eas, and ot her hi gh r i sk
dut i es. We wer e pr ovi ded wi t h f ew, i f any, pol i ci es or
pr ocedur es f or t hese speci al i zed uni t s.
- 11 -
We r ecommend t he VI PD devel op cl ear pol i ci es and pr ocedur es
f or each of t hese speci al i zed uni t s, i ncl udi ng of f i cer sel ect i on
cr i t er i a, aut hor i zed t act i cs and weapons, chai n of command and
t r ai ni ng. Due t o t he hi gh r i sk nat ur e of t he mi ssi ons of t hese
uni t s, cl ear and det ai l ed pol i ci es and pr ocedur es shoul d be
devel oped by t he VI PD.
E. Use of For ce Repor t i ng
Gener al Or der 2004- 001 l i mi t s t he ci r cumst ances under whi ch
a use of f or ce r epor t i s r equi r ed t o be made. For exampl e,
Sect i on 4. 2. 3 r equi r es a use of f or ce r epor t onl y when t her e i s
an i nj ur y, medi cal t r eat ment i s r equi r ed or r equest ed, or t he
f or ce used r el at ed t o a cr i mi nal char ge ( i . e. , r esi st i ng ar r est ,
assaul t , endanger i ng or har assment ) . A use of f or ce r epor t i s
onl y r equi r ed t o be compl et ed by t he ar r est i ng of f i cer and any
ot her of f i cer not i f i ed by a super vi sor . I n addi t i on, t hi s
Sect i on f ai l s t o i dent i f y t he speci f i c f or mt o used or t he t i me
f r ame i n whi ch t hi s r epor t must be compl et ed.
Sect i on 4. 4 out l i nes a di f f er ent r epor t i ng pr ocedur e f or t he
di schar ge of f i r ear ms, but i t does not i ndi cat e whet her t hi s
r epor t i s al so consi der ed a use of f or ce r epor t . Sect i on 4. 4 i s
def i ci ent i n sever al ways. I t does not st at e whet her t he
r epor t i ng r equi r ement s appl y t o al l of f i cer s whet her on- or of f -
dut y. I t f ai l s t o speci f y t he t ype of r epor t t o be compl et ed
( i . e. , use of f or ce r epor t , nar r at i ve) , who i s r equi r ed t o
compl et e t he r epor t ( i . e. , of f i cer s and/ or super vi sor s) , and what
i nf or mat i on i s r equi r ed i n t he r epor t s. The t i me f r ames and
l i mi t at i ons pr ovi ded i n Sect i on 4. 4 ar e i nconsi st ent wi t h
gener al l y accept ed l aw enf or cement pr act i ces. For exampl e,
Sect i on 4. 4 al l ows f or f i r ear mdi schar ge r epor t s t o be compl et ed
wi t hi n 72 hour s of t he i nci dent and pr ohi bi t s vi deot ape or
audi ot ape r ecor ded i nt er vi ews wi t hi n t he f i r st 24 hour s f ol l owi ng
an i nci dent . These t i me f r ames shoul d be shor t ened or
el i mi nat ed.
We r ecommend t hat VI PD pol i cy be r evi sed t o pr ovi de det ai l ed
gui dance and pr ocedur es f or r epor t i ng al l uses of physi cal or
i nst r ument al f or ce beyond un- r esi st ed handcuf f i ng on a f or m
dedi cat ed sol el y t o r ecor di ng use of f or ce i nf or mat i on.
4
The
pol i cy shoul d be r evi sed t o r equi r e t he ar r est i ng of f i cer and al l
4
Al l uses of f or ce shoul d be r ecor ded on t hi s f or m,
i ncl udi ng physi cal uses of f or ce, shoot i ngs, or uses of f or ce
i nvol vi ng ot her weapons such as st un guns, t aser s, or ASP bat ons.
- 12 -
ot her of f i cer s who t ook par t i n or wi t nessed a use of f or ce t o
pr epar e a r epor t det ai l i ng t he event .
We r ecommend t he f or mbe st r uct ur ed so t hat di scr et e
i nf or mat i on about mul t i pl e uses of f or ce by mul t i pl e of f i cer s i n
a si ngl e i nci dent may be r ecor ded. The f or mshoul d r equi r e
of f i cer s t o pr ovi de a det ai l ed descr i pt i on of t he i nci dent ,
begi nni ng wi t h t he basi s f or t he i ni t i al cont act , cont i nui ng
t hr ough t he speci f i c ci r cumst ances and act i ons t hat pr ompt ed each
use of f or ce, r esul t i ng i nj ur i es, and medi cal t r eat ment . The
f or mshoul d cont ai n check boxes, whi ch may be suppor t ed by a
nar r at i ve, wher e appr opr i at e. The f or mshoul d i ncl ude sect i ons
t o i ndi cat e whet her t he named wi t nesses pr ovi ded st at ement s and
f or super vi sor s t o eval uat e each use of f or ce.
We r ecommend t hat t he pol i cy speci f y t hat al l use of f or ce
r epor t s and i nf or mat i on be appr opr i at el y and t i mel y r epor t ed and
r ecor ded, t he r esponsi bi l i t y of t he f i r st - l i ne super vi sor t o
ensur e t he use of f or ce i s document ed, and a pr ocedur e f or t he
i nf or mat i on t o be pr ovi ded t o t he chai n- of - command. The pol i cy
shoul d est abl i sh a r evi ew mechani smt o ensur e t hat of f i cer s ar e
compl yi ng wi t h t he r epor t i ng pr ocedur es and pr ovi de f or
appr opr i at e admi ni st r at i ve sanct i ons f or of f i cer s who f ai l t o
compl y.
F. Use of For ce Revi ew and I nvest i gat i on
Super vi sor y r evi ew of of f i cer uses of f or ce i s cr i t i cal t o a
depar t ment s abi l i t y t o ensur e of f i cer s ar e usi ng f or ce i n a
manner consi st ent wi t h const i t ut i onal st andar ds and t he
depar t ment s pol i ci es. Use of f or ce r evi ews may i dent i f y bot h
of f i cer t r ai ni ng needs and pat t er ns of unaut hor i zed or excessi ve
uses of f or ce. The i nf or mat i on r egar di ng each use of f or ce
shoul d be t r acked i n an Ear l y War ni ng Syst em( EWS) , as
di scussed i n f ur t her det ai l bel ow.
VI PD l acks a cl ear pol i cy on r evi ewi ng uses of f or ce and
i nvest i gat i ng t hose t hat appear excessi ve, avoi dabl e, and/ or
i ndi cat i ve of pot ent i al l y cr i mi nal mi sconduct . GOs 92- 3 and
2004- 001 speci f y t hat t he VI PD wi l l r evi ew al l ci r cumst ances
i nvol vi ng cr i t i cal i nci dent s or vi ol ent conf r ont at i ons. However ,
92- 3 l i mi t s such cr i t i cal i nci dent r evi ew t o si t uat i ons wher e a
f i r ear mor ot her deadl y weapon i s used. Thi s r evi ew pol i cy
i nappr opr i at el y f ocuses on t he t ype of weapon used. The r evi ew
pol i cy est abl i shes a panel t o r evi ew cr i t i cal i nci dent s and
vi ol ent conf r ont at i ons, but i t does not pr ovi de any gui dance t o
i t s member s r egar di ng t he appr opr i at e r evi ew pr ocess.
- 13 -
We r ecommend t hat t he VI PD f or ce r evi ew pol i cy be r evi sed t o
st at e t hat al l shoot i ngs and uses of f or ce, whet her t hey i nvol ve
a weapon or not , be r evi ewed by VI PD of f i ci al s. Al l uses of
f or ce beyond un- r esi st ed handcuf f i ng shoul d be r evi ewed at some
l evel wi t hi n a pol i ce agency. The pol i cy shoul d out l i ne t he
pr ocedur es f or super vi sor y r evi ew r egar di ng l ower - l evel uses of
f or ce and t he pr ocedur es f or r evi ew and i nvest i gat i on r egar di ng
hi gher - l evel uses of f or ce, i ncl udi ng pot ent i al cr i mi nal
mi sconduct .
5
The pol i cy shoul d pr ovi de cl ear gui del i nes f or
super vi sor s t o f ol l ow i n t hei r r evi ew and i nvest i gat i on,
i ncl udi ng an appr oval si gnat ur e or bl ock on t he appr opr i at e f or ms
and t he ci r cumst ances under whi ch a super vi sor i s r equi r ed t o
not i f y command st af f , i ncl udi ng t he Ter r i t or i al Chi ef and t he
Pol i ce Commi ssi oner .
We r ecommend t hat t he I AU be r esponsi bl e f or r out i nel y
r espondi ng t o t he scene and i nvest i gat i ng uses of f or ce i n whi ch
t he subj ect i s i nj ur ed or compl ai ns of excessi ve use of f or ce and
al l f i r ear mdi schar ges, except di schar ges i n t he cour se of
t r ai ni ng or cer t i f i cat i on.
III. VEHICLE PURSUITS
The VI PD s vehi cl e pur sui t pol i cy i s out dat ed and def i ci ent
i n sever al ar eas. The pol i cy f ai l s t o di st i ngui sh bet ween
emer gency dr i vi ng and hi gh speed pur sui t s. I t does not
speci f y when such act i ons ar e aut hor i zed or t he pr oper pr ocedur es
f or and t he super vi sor y cont r ol of such pur sui t s.
We r ecommend t hat VI PD pol i cy be r evi sed t o cl ar i f y t he
di st i nct i on bet ween emer gency dr i vi ng and hi gh speed pur sui t s.
Emer gency dr i vi ng t ypi cal l y r ef er s t o si t uat i ons wher e of f i cer s
ar e r espondi ng t o cal l s and si t uat i ons i nvol vi ng t he pr ot ect i on
of l i f e ( e. g. , r espondi ng t o a bank r obber y i n pr ogr ess) . Hi gh
speed pur sui t s gener al l y r ef er t o si t uat i ons i n whi ch of f i cer s
ar e pur sui ng, f or exampl e, an ar med and danger ous f el ony suspect
f l eei ng a scene i n a vehi cl e.
Because hi gh- speed vehi cl e pur sui t s pr esent a gr eat r i sk of
har mt o t he of f i cer , t he subj ect , i nnocent byst ander s and ot her
dr i ver s, t hey shoul d onl y be aut hor i zed f or t he appr ehensi on of
i ndi vi dual s who ar e al l eged t o have commi t t ed or ar e commi t t i ng
speci f i ed ser i ous f el oni es and who pose an i mmedi at e t hr eat of
5
The pol i cy shoul d speci f i cal l y pr ovi de t he pr ocedur es
and gui del i nes f or compel l i ng st at ement s f r omof f i cer s i n
accor dance wi t h Gar r i t y v. New J er sey, 385 U. S. 493 ( 1967) .
- 14 -
ser i ous physi cal har mt o t he of f i cer or t he publ i c. Accor di ngl y,
we r ecommend t he pol i cy be r evi sed t o el i mi nat e t he gener al and
br oad cat egor y of assaul t s, whi ch i ncl udes mi sdemeanor
assaul t s, as a j ust i f i cat i on f or hi gh speed pur sui t s.
We r ecommend t hat t he VI PD pol i cy be r evi sed t o cont ai n
speci f i c i nst r uct i ons and pr ovi si ons f or super vi sor y cont r ol of
pur sui t s. I n al l cases of pur sui t , a super vi sor shoul d t ake
command of t he pur sui t and be r esponsi bl e f or i t s cont i nuance or
di scont i nuance. I n addi t i on t o r oad, t r af f i c, l i ght , weat her and
vehi cl e condi t i ons, and dr i ver s abi l i t y, t he pol i cy shoul d be
r evi sed t o r equi r e t he super vi sor t o consi der publ i c saf et y and
t he l i kel i hood of appr ehendi ng t he suspect at anot her t i me.
Fol l owi ng each pur sui t , VI PD shoul d conduct a super vi sor y r evi ew
of t he pur sui t f or consi st ency wi t h VI PD pol i cy. Thi s r evi ew
shoul d consi der onl y t hose f act s known t o of f i cer s at t he t i me of
t he pur sui t and not i nf or mat i on subsequent l y obt ai ned.
IV. HOLDING CELLS
We sent a l et t er addr essed t o Commi ssi oner Lewi s i n Oct ober
2004, r egar di ng our concer ns about t he VI PD hol di ng cel l s i n St .
Thomas, St . J ohn, and St . Cr oi x. Our concer ns i ncl uded: 1) l ack
of pol i ci es or pr ocedur es f or medi cal and ment al heal t h ser vi ces
f or det ai nees; 2) pr esence of sui ci de hazar ds i n t he cel l s; 3)
l ack of pr ocedur es f or t he pr ovi si on of f ood and necessar y
medi cat i on t o det ai nees; 4) l ack of f unct i onal f i r e cont r ol
syst ems; 5) f ai l ur e t o pr ovi de f or t he saf et y and secur i t y of
det ai nees; and 6) l ack of adequat e pol i ci es or pr ocedur es f or t he
det ent i on of j uveni l es. We pr ovi ded you wi t h t echni cal
assi st ance and sampl e pol i ci es and pr ocedur es r egar di ng t he
var i ous ar eas of concer n i n our Oct ober 2004 l et t er , whi ch was
r e- sent t o At t or ney Ki ng wi t h encl osur es, per hi s r equest , on
Mar ch 31, 2005. We r ecommend VI PD devel op pol i ci es and
pr ocedur es consi st ent wi t h our r ecommendat i ons t o ensur e t he
saf et y of al l det ai nees.
V. MISCONDUCT INVESTIGATIONS
The VIPD should develop and implement a centralized, formal,
structured and consistent system for receiving and
investigating complaints of police misconduct.
A. I nvest i gat i on of Ci t i zen Compl ai nt s
An open, f ai r and i mpar t i al pr ocess f or r ecei vi ng and
i nvest i gat i ng ci t i zen compl ai nt s ser ves sever al i mpor t ant
- 15 -
pur poses. An appr opr i at e ci t i zen compl ai nt pr ocedur e ensur es
of f i cer account abi l i t y and super vi si on, det er s mi sconduct , and
hel ps mai nt ai n good communi t y r el at i ons, i ncr easi ng publ i c
conf i dence i n, and r espect f or , t he VI PD. I mpr ovi ng t he cur r ent
pr ocedur e f or handl i ng ci t i zen compl ai nt s woul d maxi mi ze t hese
goal s.
1. Compl ai nt For ms
Compl ai nt s may be made at an I AU of f i ce or any of t he
var i ous zones l ocat ed t hr oughout t he Vi r gi n I sl ands.
6
However ,
ci t i zen compl ai nt f or ms ar e i nconsi st ent l y used. For exampl e,
t he I AU SOP i dent i f i es t hr ee f or ms r el at ed t o a ci t i zen
compl ai nt : 1) compl ai nt f or m( For m#91- 2) ; 2) conf i r mat i on of
compl ai nt f or m( For m#91- 3) ; and 3) t er mi nat i on of compl ai nt f or m
( For m#91- 4) . Al t hough t he VI PD Pol i ce Manual r equi r es a
super vi sor t o ent er a compl ai nt on an appr opr i at e f or m based on
a compl ai nant s r eci t at i on of t he f act s, a speci f i c compl ai nt
f or mi s not i dent i f i ed i n t he VI PD Pol i ce Manual . I n f act , we
under st and t hat t he zones use ar r est r epor t s, al so known as 1As,
i nst ead of compl ai nt f or ms t o memor i al i ze compl ai nt i nf or mat i on.
The I AU SOP s ci t i zen compl ai nt f or ms ar e i nadequat e and
i nconsi st ent wi t h gener al l y accept ed pol i ce pr act i ces. For
exampl e, t he f or ms i ncl ude an Opt i ons sect i on, whi ch appear s t o
pr ovi de compl ai nant s wi t h a choi ce bet ween t wo pr ocedur al r out es
f or t hei r compl ai nt s. The f i r st opt i on al l ows f or t he
possi bi l i t y of , but does not r equi r e, an i nvest i gat i on r egar di ng
t he compl ai nt . The compl ai nt f or mnot i f i es compl ai nant s t hat , i f
a hear i ng i s conduct ed under t he f i r st opt i on, t hey wi l l be
subj ect ed t o quest i oni ng by t he Chi ef of Pol i ce, an i nvest i gat or
and a uni on r epr esent at i ve. However , t her e i s no si mi l ar
di scussi on of t he accused of f i cer s obl i gat i ons. The second
opt i on does not i ncl ude an i nvest i gat i on r equi r ement and si mpl y
st at es t hat t he of f i cer can be admoni shed ver bal l y.
We r ecommend t hat VI PD ci t i zen compl ai nt pol i cy be r evi sed
t o r equi r e an i nvest i gat i on of ever y compl ai nt . The appr opr i at e
command st af f , r at her t han t he compl ai nant , shoul d det er mi ne t he
appr opr i at e act i on t o be t aken. The f or ms shoul d be r evi sed t o
el i mi nat e t he opt i ons sect i on f r omt he compl ai nt f or ms. The
f or ms shoul d st at e t hat an i nvest i gat i on wi l l be conduct ed, t hat
t he compl ai nant wi l l be not i f i ed of t he r esul t s of t he
6
Accor di ng t o t he VI PD or gani zat i onal char t , t her e ar e
seven zones: St . Cr oi x has zones A, B, and C; St . Thomas has
zones A, B, and C, and St . J ohn has zone D.
- 16 -
i nvest i gat i on and t hat t he compl ai nant s cooper at i on i s r equest ed
t hr oughout t he i nvest i gat i on.
We r ecommend t he el i mi nat i on of t he Ter mi nat i on of
Compl ai nt f or m. The cur r ent compl ai nt pr ocess pr ovi des t hat a
compl ai nt can be t er mi nat ed, wi t hout an i nvest i gat i on, i f t he
compl ai nant decl ar es t he f ol l owi ng: I amsat i sf i ed wi t h t he
manner i n whi ch t hi s compl ai nt was handl ed and do her eby consi der
t hi s mat t er r esol ved. I t i s i nappr opr i at e f or a compl ai nt t o be
uni l at er al l y t er mi nat ed by t he compl ai nant wi t hout an
i nvest i gat i on. We r ecommend t hat at t he concl usi on of each
i nvest i gat i on, al l r el evant par t i es, i ncl udi ng t he compl ai nant ,
r ecei ve a l et t er set t i ng f or t h t he name of t he compl ai nant , t he
uni que cont r ol number , t he dat e of t he i nci dent , t he name of t he
of f i cer ( s) i nvol ved, t he key f act s of t he compl ai nt , and t he
f i nal di sposi t i on of t he compl ai nt . I f sust ai ned, t he l et t er
shoul d i ndi cat e whet her r emedi al act i ons wi l l be or have been
t aken.
The l et t er advi si ng t he ci t i zen of t he r esol ut i on of t he
compl ai nt shoul d be dr af t ed by t he super vi sor conduct i ng t he
i nvest i gat i on and t hen r evi ewed and appr oved by t he appr opr i at e
chai n of command. I f any i ndi vi dual i n t he chai n of command
r evi ew di sagr ees wi t h t he pr evi ous r evi ewer s f i ndi ngs and/ or
r ecommendat i ons, t he r eason f or such modi f i cat i on shoul d be i n
wr i t i ng and kept wi t h t he or i gi nal r ecommendat i on i n t he
compl ai nt f i l e, and, af t er f i nal r evi ew and appr oval , t he l et t er
t o t he compl ai nant shoul d be modi f i ed accor di ngl y. Ever y
mi sconduct compl ai nt shoul d begi n wi t h a ci t i zen compl ai nt f or m,
and end wi t h a l et t er , each document r ef l ect i ng t he same cont r ol
number f or ease of r ef er ence and l at er r evi ew, i f any.
2. Compl ai nt I nt ake
The VI PD s cur r ent pol i ci es and pr ocedur es r egar di ng
compl ai nt i nt ake ar e l ocat ed i n t he VI PD Pol i ce Manual and t he
I AU SOP. These t wo pol i ci es ar e i nconsi st ent . For exampl e, t he
I AU SOP r equi r es t he accept ance of anonymous compl ai nt s, but t he
VI PD Pol i ce Manual does not . The VI PD Manual r equi r es compl ai nt s
t o be r ef er r ed t o a super vi sor , but t he I AU SOP does not . The
VI PD Manual , unl i ke t he I AU SOP, appear s t o r equi r e super vi sor s
t o compl et e compl ai nt f or ms based on a compl ai nant s r eci t at i on
of t he f act s, i nst ead of al l owi ng compl ai nant s t o compl et e t he
f or mt hemsel ves.
Ther e shoul d be one compr ehensi ve pol i cy f or compl ai nt
i nt ake. That pol i cy shoul d be consi st ent i n t he VI PD Pol i ce
Manual , t he I AU SOP, and al l ot her r el evant document s. We
- 17 -
r ecommend r evi si on t o t he VI PD pol i cy t o pr ovi de cl ear pr ocedur es
r egar di ng t he i nt ake of any compl ai nt , i ncl udi ng anonymous and
conf i dent i al compl ai nt s, agai nst a VI PD of f i cer . Thi s pol i cy
shoul d i ncl ude i nst r uct i ons t o an of f i cer f or t aki ng a compl ai nt
and pr ompt del i ver y t o a super vi sor .
A compl ai nt pr ocess shoul d al l ow unf et t er ed abi l i t y t o make
compl ai nt s. The avai l abi l i t y of a uni f or mcompl ai nt f or mand
i nf or mat i on about t he compl ai nt pr ocess shoul d be pr omi nent l y
post ed at each pol i ce st at i on, zone, VI PD headquar t er s, ot her
publ i c f aci l i t i es, and i n l ocat i ons whi ch per mi t t he f or ms t o be
obt ai ned wi t hout a speci f i c r equest by a ci t i zen or a r equi r ement
t hat t he compl ai nt be r eci t ed t o a super vi sor .
3. Cent r al i zed I nvest i gat i on Assi gnment s
Nei t her t he VI PD manual s nor t he I AU SOP est abl i sh a syst em
or pr ocedur e f or t r acki ng al l compl ai nt s. Ther e i s no
cent r al i zed number i ng and t r acki ng syst emf or al l i ncomi ng
compl ai nt s, whet her t hey ar e r ecei ved by t he zones or t he I AUs.
Ther e i s no agency or i ndi vi dual r esponsi bl e f or number i ng,
t r acki ng and mai nt ai ni ng over si ght of al l compl ai nt s. Al t hough
t he I AU SOP st at es t hat al l compl ai nt s t hat ar e r ecei ved at t he
I AU r ecei ve a t r acki ng number , t he I AU r ecei ves onl y a por t i on of
al l compl ai nt s. Compl ai nt s t hat ar e i nvest i gat ed by t he zones do
not necessar i l y r ecei ve a t r acki ng number and, i f t hey do, t hey
may be dupl i cat i ve of I AU t r acki ng number s.
7
The Pol i ce Manual and t he I AU SOP pr ovi de i nconsi st ent and
l i mi t ed gui dance f or det er mi ni ng whi ch compl ai nt s shoul d be
i nvest i gat ed by t he zones and whi ch shoul d be i nvest i gat ed by t he
I AU. For exampl e, t he VI PD Pol i ce Manual pr ovi des t hat t he zones
i nvest i gat e compl ai nt s of unnecessar y use of f or ce. ( VI PD Pol i ce
Manual Ch. 8. 4. 2) . However , t he I AU SOP pr ovi des t hat t he I AU
i nvest i gat es compl ai nt s of unl awf ul uses of f or ce and br ut al i t y.
( I AU SOP Ch. 3. 2) .
We r ecommend t hat t he VI PD i nst i t ut e a cent r al i zed number i ng
and t r acki ng syst emf or al l compl ai nt s, r egar dl ess of t he nat ur e
of t he compl ai nt , t he ser i ousness of t he al l egat i on, or t he
l ocat i on wher e or t o whomt he compl ai nt i s made. The VI PD pol i cy
shoul d pr ovi de t hat ever y compl ai nt r ecei ve a t r acki ng number as
soon as possi bl e. A cent r al i zed number i ng syst emshoul d be
mai nt ai ned by t he I AU f or al l compl ai nt s.
7
Dur i ng our i nvest i gat i on, we r ecei ved document s
r egar di ng di f f er ent compl ai nt f i l es wi t h t he same f i l e number s.
- 18 -
We r ecommend t hat t he I AU be desi gnat ed t he pr i mar y and
cent r al i zed agency t o det er mi ne whet her t he i nvest i gat i on wi l l be
assi gned t o t he zone, r et ai ned by t he I AU, or r ef er r ed f or
possi bl e cr i mi nal i nvest i gat i on. I f I AU r ef er s a compl ai nt t o a
zone, copi es of al l document s, f i ndi ngs, and r ecommendat i ons
shoul d be i mmedi at el y f or war ded t o t he I AU f or t r acki ng and
moni t or i ng.
8
The pol i cy shoul d speci f y a st andar d pr ocedur e f or
not i f yi ng t he Pol i ce Commi ssi oner , or hi s or her desi gnee, of
compl ai nt s soon as possi bl e. For compl ai nt s al l egi ng t he
excessi ve use of f or ce or vi ol at i on of a per son s const i t ut i onal
r i ght s, t he Pol i ce Commi ssi oner shoul d be not i f i ed no l ess t han
t went y- f our hour s af t er r ecei pt of a compl ai nt .
4. I nvest i gat i ons and Ref er r al s
VI PD does not have a consi st ent pol i cy f or conduct i ng
compl ai nt i nvest i gat i ons. The VI PD Pol i ce Manual does not
pr ovi de any gui dance t o zone i nvest i gat or s. Al t hough t he I AU SOP
pr ovi des l i mi t ed gui dance on conduct i ng a compl ai nt i nvest i gat i on
t o I AU i nvest i gat or s, i t i s out dat ed and i nconsi st ent wi t h
accept ed pol i ce pr act i ces. For exampl e, i n a st ar k depar t ur e
f r omgener al l y accept ed l aw enf or cement pr act i ces, t he I AU SOP
di sposi t i on cat egor i es ar e cont i ngent upon whet her t he
compl ai nant suf f er s har m.
9
The I AU SOP does not pr ovi de cl ear
gui dance r egar di ng t he di st i nct i on bet ween cr i mi nal and
admi ni st r at i ve i nvest i gat i ons and t he r equi si t e pr ocedur al and
l egal pr ot ect i ons shoul d t her e be pot ent i al cr i mi nal mi sconduct .
The I AU SOP appear s t o pr esume t hat i f t her e i s a cr i mi nal
i nvest i gat i on, t her e cannot be a par al l el admi ni st r at i ve
i nvest i gat i on. The VI PD Pol i ce Manual pr ovi des t hat an
admi ni st r at i ve i nvest i gat i on wi l l be conduct ed onl y i f t he
cr i mi nal pr oceedi ngs ar e di smi ssed.
We r ecommend t hat t he VI PD adopt a si ngl e pol i cy concer ni ng
t he i nvest i gat i on of mi sconduct compl ai nt s, r egar dl ess of whet her
8
Dur i ng our i nvest i gat i on, we asked f or copi es of
sever al I AU i nvest i gat i on f i l es. However , VI PD was unabl e t o
l ocat e t hese f i l es at I AU because t he i nvest i gat i ons wer e
conduct ed at t he zones. The ci t i zen compl ai nt pol i cy shoul d
pr ovi de f or cl ear document r et ent i on pol i ci es and f or I AU s
cent r al f i l e t o be r egul ar l y updat ed and suppl ement ed.
9
The di sposi t i on cat egor i es ar e: pr oper conduct ( no
har m) ; i mpr oper conduct ( har m) ; pol i cy f ai l ur e ( har m) ;
i nsuf f i ci ent evi dence; unf ounded compl ai nt ; and par t i al l y
sust ai ned.
- 19 -
t he i nvest i gat i on i s conduct ed by t he I AU or a zone. The VI PD
pol i cy and t r ai ni ng shoul d i ncl ude i nvest i gat i ve and i nt er vi ew
t echni ques, i ncl udi ng exami ni ng and i nt er r ogat i ng accused
of f i cer s and ot her wi t nesses; i dent i f yi ng mi sconduct even i f i t
i s not speci f i cal l y named i n t he compl ai nt ; t he f act or s t o
consi der when eval uat i ng compl ai nant or wi t ness cr edi bi l i t y; t he
di r ect i ve t hat of f i cer and wi t ness st at ement s be wei ghed equal l y;
and pr eponder ance of t he evi dence as t he appr opr i at e bur den of
pr oof . We r ecommend t hat t he VI PD pol i cy r equi r e t hat al l
i nt er vi ews be mechani cal l y r ecor ded usi ng an audi o or vi deo t ape.
We r ecommend t hat t he cat egor i es of i nvest i gat i on
di sposi t i on shoul d not be condi t i oned on whet her t he compl ai nant
suf f er ed har m. Har mcan i ncl ude physi cal or psychol ogi cal har m,
or vi ol at i on of a per son s ci vi l r i ght s, f or exampl e. An of f i cer
may have engaged i n i mpr oper conduct even t hough t he compl ai nant
di d not suf f er har m. Si mi l ar l y, whet her a pol i cy f ai l ur e
occur r ed shoul d not be cont i ngent on whet her t he compl ai nant
suf f er ed har m. Accor di ngl y, we r ecommend VI PD r evi se i t s
pol i ci es t o r equi r e t hat t he i nvest i gat i ve f i ndi ngs i ncl ude
whet her : 1) t he pol i ce act i on was i n compl i ance wi t h pol i cy,
t r ai ni ng and l egal st andar ds, r egar dl ess of whet her t he
compl ai nant suf f er ed har m; 2) t he i nci dent i nvol ved mi sconduct by
any of f i cer ; 3) t he use of di f f er ent t act i cs shoul d or coul d have
been empl oyed; 4) t he i nci dent i ndi cat es a need f or addi t i onal
t r ai ni ng, counsel i ng or ot her non- di sci pl i nar y cor r ect i ve
measur es; and 5) t he i nci dent suggest s t hat VI PD shoul d r evi se
i t s pol i ci es, t r ai ni ng, or t act i cs.
We r ecommend t hat t he pol i cy pr ovi de cl ear gui dance t o al l
i nvest i gat or s r egar di ng t he pr ocedur es f or handl i ng cr i mi nal
mi sconduct al l egat i ons, r ef er r i ng t hemt o t he Vi r gi n I sl ands
At t or ney Gener al s Of f i ce or ot her appr opr i at e agency f or
possi bl e cr i mi nal pr osecut i on, and t he ent i t y or i ndi vi dual t hat
shoul d make t he det er mi nat i on of whet her t he compl ai nt be
i nvest i gat ed cr i mi nal l y. We r ecommend t hat t he pol i cy be r evi sed
t o r equi r e t he compl et i on of an admi ni st r at i ve i nvest i gat i on,
i r r espect i ve of t he i ni t i at i on or out come of cr i mi nal
pr oceedi ngs.
We r ecommend t hat t he pol i ci es and pr ocedur es cl ar i f y t he
r i ght s of of f i cer s who may be t he subj ect of a mi sconduct
i nvest i gat i on. Dur i ng an admi ni st r at i ve i nvest i gat i on, of f i cer s
suspect ed of pot ent i al l y cr i mi nal mi sconduct shoul d be i nf or med
of t hei r r i ght s under Mi r anda v. St at e of Ar i zona, 384 U. S. 436
( 1966) , bef or e quest i oni ng, i ncl udi ng t hei r r i ght s agai nst sel f -
i ncr i mi nat i on and t o have counsel pr esent dur i ng quest i oni ng.
The VI PD pol i cy shoul d pr ovi de cl ear gui dance t o i nvest i gat or s
- 20 -
r egar di ng t he pr ocedur es f or when and how t o compel st at ement s
f r omof f i cer s f or t he pur poses of an admi ni st r at i ve i nvest i gat i on
i n conf or mance wi t h Gar r i t y v. New J er sey, 385 U. S. 493 ( 1967) .
B. I nt er nal Af f ai r s Uni t : St r uct ur e and Or gani zat i on
The i nt er nal af f ai r s component of a l aw enf or cement agency
saf eguar ds t he i nt egr i t y of t he depar t ment and i t s of f i cer s. I t
shoul d seek t o ensur e t hat t hose who enf or ce t he l aw wi l l
t hemsel ves f ol l ow t he l aw, as wel l as mai nt ai n an accept abl e
l evel of pr of essi onal i sm. The VI PD shoul d acknowl edge and
suppor t t he i nt egr al r ol e an i nt er nal af f ai r s uni t ser ves by
ensur i ng t hat t he I AU be an aut onomous and obj ect i ve component of
t he pol i ce depar t ment , and t hat i t i s compr i sed of wel l - t r ai ned
per sonnel who ar e st af f ed at adequat e l evel s t hr oughout t he
var i ous di st r i ct s.
1. Or gani zat i on and Responsi bi l i t i es
The I AU SOP st at es t hat t her e ar e t hr ee r esponsi bi l i t i es of
t he I AU:
r el at i ons.
appl i cant scr eeni ng; i nt er nal i nvest i gat i ons; and l abor
Not onl y does t he I AU SOP f ai l t o pr i or i t i ze t hese
r esponsi bi l i t i es, but i t al so f ai l s t o pr ovi de any st andar ds or
pr ocedur es wi t h r espect t o conduct i ng appl i cant scr eeni ng. The
i nvest i gat i ng of f i cer appar ent l y has compl et e di scr et i on t o
det er mi ne t he sui t abi l i t y of VI PD appl i cant s.
We r ecommend t he VI PD est abl i sh cl ear st andar ds and
st r uct ur e f or t he I AU t o f ol l ow f or scr eeni ng VI PD appl i cant s.
The pol i cy shoul d pr ovi de obj ect i ve st andar ds by whi ch VI PD
appl i cant s wi l l be r evi ewed and accept ed, i ncl udi ng, t he ef f ect ,
i f any, of a pr i or cr i mi nal hi st or y on t he sui t abi l i t y of an
appl i cant .
We r ecommend t hat someone ot her t han t he I AU Di r ect or ser ve
as t he l abor r el at i ons speci al i st . I t i s cr i t i cal f or t he I AU
and i t s Di r ect or t o have aut onomy, obj ect i vi t y and i mpar t i al i t y.
The r ol e of a l abor r el at i ons speci al i st pl aces t he Di r ect or i n
pot ent i al conf l i ct s of i nt er est . For exampl e, because cont r act
negot i at i ons and i nt er pr et at i on i ncl ude i ssues di r ect l y r el at ed
t o t he I AU ( e. g. , mi sconduct compl ai nt s and i nvest i gat i ons) , t he
Di r ect or of t he I AU may be negot i at i ng wi t h t he uni on, as t he
l abor r el at i ons speci al i st , r egar di ng pendi ng mi sconduct
penal t i es t hat s/ he woul d have t o i mpose as t he I AU Di r ect or . We
r ecommend t hat an i ndependent per son out si de of t he I AU be
desi gnat ed t o ser ve i n t hi s capaci t y.
- 21 -
2. St af f i ng and Tr ai ni ng
The VI PD has no pol i cy est abl i shi ng sel ect i on cr i t er i a f or
I AU posi t i ons, nor ar e t her e r ecr ui t i ng or t r ai ni ng pr ocedur es.
Cur r ent l y, t he VI PD s I nt er nal Af f ai r s Bur eau over sees t wo I AUs,
whi ch ar e compr i sed of di f f er ent r anki ng super vi sor s and
i nconsi st ent st af f i ng l evel s. For exampl e, t he St . Thomas/ St .
J ohn I AU super vi sor i s a Ser geant , but t he St . Cr oi x I AU
super vi sor i s a Cor por al . The St . Thomas/ St . J ohn I AU s
i nvest i gat or s ar e a Cor por al and pol i ce of f i cer , but t he St .
Cr oi x I AU s i nvest i gat or s ar e a Cor por al and t wo agent s. The
I AU SOP does not pr ovi de an expl anat i on f or t he di f f er ent
st af f i ng l evel s or t he di st i nct i on bet ween an agent
i nvest i gat or and pol i ce of f i cer i nvest i gat or .
We r ecommend t hat t he VI PD devel op a pol i cy r egar di ng
sel ect i on cr i t er i a f or I AU per sonnel , i ncl udi ng r ecr ui t i ng and
t r ai ni ng pr ocedur es. An I AU component must be appr opr i at el y
st af f ed and t r ai ned t o handl e i nvest i gat i ve and admi ni st r at i ve
r esponsi bi l i t i es. I n sel ect i ng I AU per sonnel , t hei r di sci pl i nar y
hi st or i es must be t aken i nt o account t o ensur e t hat onl y of f i cer s
wi t h t he hi ghest et hi cal st andar ds ser ve as i nvest i gat or s. I AU
i nvest i gat or s shoul d not be sel ect ed t o i nvest i gat e a par t i cul ar
mat t er i f t hey had any i nvol vement i n t he i nci dent under r evi ew
or whose r el at i onshi p wi t h an of f i cer i n quest i on woul d cr eat e an
appear ance of bi as or i mpr opr i et y. The VI PD shoul d of f er
i ncent i ves t o encour age qual i f i ed of f i cer s t o appl y f or I AU
posi t i ons.
We r ecommend t hat t he Di st r i ct s f or St . Thomas/ St . J ohn and
St . Cr oi x mai nt ai n consi st ent st af f i ng, or , at l east , r equi r e t he
equi val ent r ank f or super vi sor y st af f .
VI. DISCIPLINE
The VIPD should develop and implement a formal, structured
and consistent system for determining and imposing
discipline.
Sever al of t he ar eas of concer n r egar di ng t he VI PD
di sci pl i nar y syst emar e di r ect l y r el at ed t o t he def i ci enci es i n
i nvest i gat i ve pr ocedur es. For exampl e, because t her e i s no
cent r al i zed t r acki ng, i t i s possi bl e f or zone commander s t o use
t hei r di scr et i on t o desi gnat e a char ge agai nst an of f i cer as
mi nor and summar i l y i mpose a ver bal r epr i mand as t he sol e
di sci pl i nar y act i on bef or e t he Deput y Chi ef of Pol i ce or t he I AU
ever l ear ns about t he compl ai nt . ( Chapt er 8. 3. 5) .
- 22 -
We ar e concer ned wi t h t he VI PD s shor t 50- day st at ut e of
l i mi t at i ons f or i nst i t ut i ng di sci pl i nar y act i on. Cur r ent VI PD
pol i cy r equi r es di sci pl i nar y act i on t o be i nst i t ut ed wi t hi n 50
days f r omt he dat e t he al l eged vi ol at i on was commi t t ed or becomes
known or shoul d have become known t o t he depar t ment . No
di sci pl i nar y act i on may be i nst i t ut ed af t er ni net y ( 90) days
f ol l owi ng t he al l eged i nf r act i on. Based on our pr el i mi nar y
r evi ew of ci t i zen compl ai nt i nvest i gat i ons, a number of compl ai nt
i nvest i gat i ons may not have been t hor oughl y compl et ed because of
t hi s shor t st at ut e of l i mi t at i ons per i od. We r ecommend t he VI PD
expl or e i t s opt i ons t o ext end t hi s st at ut e of l i mi t at i ons per i od.
I r r espect i ve of t he shor t st at ut e of l i mi t at i ons per i od, VI PD s
f ai l ur e t o compl et e i nvest i gat i ons pr ecl udes t he depar t ment f r om
i dent i f yi ng pot ent i al syst em- wi de i ssues, pr ovi di ng cor r ect i ve
t r ai ni ng, and r evi si ng pol i ci es, as necessar y. VI PD pol i cy
shoul d i dent i f y cl ear t i me per i ods by whi ch t he var i ous st eps of
a compl ai nt adj udi cat i on pr ocess shoul d be compl et ed, f r om
compl ai nt r ecei pt t o t he i mposi t i on of di sci pl i ne, i f any.
Absent exi gent ci r cumst ances, ext ensi ons shoul d not be gr ant ed
wi t hout t he Pol i ce Commi ssi oner s wr i t t en appr oval and not i ce t o
t he compl ai nant . I n t he l i mi t ed ci r cumst ances when an ext ensi on
i s necessar y, appr opr i at e t ol l i ng pr ovi si ons shoul d be out l i ned
i n t he pol i cy.
We r ecommend t hat t he VI PD pol i cy be r evi sed so t hat no
penal t i es, i ncl udi ng ver bal r epr i mands and counsel i ng, be i mposed
wi t hout f i nal aut hor i zat i on by t he appr opr i at e chai n of command.
The pol i cy shoul d i ncl ude r evi ew and appr oval of any di sci pl i ne
by t he chai n of command and, ul t i mat el y, t he Pol i ce Commi ssi oner ,
bef or e any di sci pl i ne i s i mposed.
VII. SUPERVISORY OVERSIGHT
VIPD command staff should examine and review officer conduct
on a regular basis as a proactive measure to minimize and
detect misconduct, and to identify training and policy
issues.
A. Ri sk Assessment and Management
Ther e i s a l ack of st r uct ur ed and f or mal over si ght of VI PD
of f i cer s by command st af f . Ther e do not appear t o be r egul ar
r evi ew pr ocedur es f or mal i zed i n pol i cy. To t he cont r ar y, r evi ew
of of f i cer act i vi t y appear s t o be i nf or mal and ad hoc.
We r ecommend t hat t he VI PD i mpl ement pol i ci es and pr ocedur es
f or VI PD super vi sor s t o r out i nel y r evi ew al l aspect s of VI PD
of f i cer conduct , i ncl udi ng a r evi ew of : 1) al l uses of f or ce, as
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set f or t h above; 2) pr obabl e cause f or ar r est s and t he
appr opr i at eness of char ges f i l ed; and 3) r easonabl e suspi ci on f or
st ops and sear ches t hat do not r esul t i n an ar r est .
We r ecommend t hat VI PD pol i cy r equi r e super vi sor s t o r evi ew
and appr ove al l ar r est r epor t s and sear ches and sei zur es, and t o
r ecor d t hei r appr oval on t he ar r est or i nci dent r epor t s by
handwr i t t en or el ect r oni c si gnat ur e. We r ecommend t hat t he
Pol i ce Commi ssi oner , or hi s or her desi gnee who wi l l di r ect l y
r epor t t o t he Pol i ce Commi ssi oner , meet annual l y wi t h ever y VI PD
of f i cer t o di scuss hi s or her compl ai nt hi st or y, i f any, and t o
di scuss any pr obl ems or concer ns of f i cer s may have concer ni ng t he
depar t ment .
B. Ear l y War ni ng Syst em
The VI PD does not have, but shoul d adopt , a r i sk assessment
syst emor an Ear l y War ni ng Syst em( EWS) as an i nt egr al par t of
i t s r i sk management pr ogr am. The VI PD can devel op an EWS t hat i s
appr opr i at e and appl i cabl e t o i t s needs and si ze. Whet her paper -
based or comput er - based, even a si mpl e EWS woul d pr ovi de a usef ul
assessment of each of f i cer s conduct as wel l as t he depar t ment as
a l aw enf or cement agency. We r ecommend t hat t he VI PD i mpl ement
pol i ci es and pr ocedur es t o col l ect dat a on i ndi vi dual of f i cer s
f or t he pur pose of mai nt ai ni ng, i nt egr at i ng, and r et r i evi ng
i nf or mat i on necessar y f or ef f ect i ve super vi si on and management of
VI PD per sonnel . The EWS shoul d cont ai n i nf or mat i on on al l
i nvest i gat i ons and compl ai nt s, i ncl udi ng non- sust ai ned compl ai nt s
and compl ai nt s pr i or t o f i nal di sposi t i on, di sci pl i ne and ot her
cor r ect i ve act i ons, uses of f or ce, ar r est s and char ges, sear ches
and sei zur es, ser vi ce cal l s, t r ai ni ng, awar ds and commendat i ons,
si ck l eave, ci vi l l awsui t s and ot her i t ems r el evant t o an
of f i cer s conduct . The VI PD can t hen use t hi s dat a r egul ar l y and
pr oact i vel y t o pr omot e best pr of essi onal pol i ce pr act i ces;
i mpr ove account abi l i t y and management ; manage t he r i sk of pol i ce
mi sconduct and pot ent i al l i abi l i t y; and eval uat e and audi t t he
per f or mance of of f i cer s and uni t s on a r egul ar basi s. We
r ecommend t hat t he VI PD r equi r e super vi sor s, i ncl udi ng command
st af f , t o r evi ew t hi s dat a f or ever y of f i cer t hey super vi se on a
r egul ar , pr edet er mi ned basi s, such as ever y quar t er .
The pol i cy i mpl ement i ng t hese r ecommendat i ons shoul d al so
est abl i sh gui del i nes r egar di ng speci f i c event s t hat wi l l t r i gger
an addi t i onal super vi sor y r evi ew, such as a speci f i c number of
uses of f or ce or ci t i zen compl ai nt s wi t hi n a di scr et e per i od.
Once an of f i cer has been sel ect ed f or t hi s addi t i onal r evi ew, a
r epor t shoul d be pr epar ed t hat det ai l s al l use of f or ce r epor t s,
f or mal and i nf or mal compl ai nt s, cal l s f or ser vi ce, si ck l eave,
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counsel i ng r epor t s, ci vi l l awsui t s, and commendat i ons per t ai ni ng
t o t he of f i cer wi t hi n t he past t en year s. The of f i cer s
i mmedi at e super vi sor and command st af f shoul d t hen meet t o
di scuss t he r epor t and det er mi ne i f any cor r ect i ve act i on i s
war r ant ed. The super vi sor s and command st af f s r ecommendat i ons
shoul d t hen be f or war ded t o t he Pol i ce Commi ssi oner f or hi s or
her r evi ew and i mpl ement at i on. The ef f ect i veness of t he
i mpl ement ed r ecommendat i ons shoul d be det er mi ned by moni t or i ng
t he of f i cer and dr af t i ng wr i t t en r epor t s on t he of f i cer s conduct
on a mont hl y basi s. Bot h t he super vi sor y r ecommendat i ons and t he
wr i t t en mont hl y r epor t shoul d be i ncl uded i n t he of f i cer s f i l e.
We r ecommend t hat t he VI PD consi der ut i l i zi ng peer r evi ews
of t he i nf or mat i on cont ai ned i n t he r epor t s by compar i ng
compl ai nt s, use of f or ce r epor t s, and ot her per t i nent i nf or mat i on
about a par t i cul ar of f i cer wi t h si mi l ar i nf or mat i on f r omot her
of f i cer s on t he same pat r ol t eamor shi f t . I n addi t i on, t he
pol i cy shoul d pr ovi de expl i ci t gui dance t o super vi sor y of f i cer s
r evi ewi ng r epor t s t o ensur e t hat pat t er ns of possi bl e mi sconduct
ar e i dent i f i ed, anal yzed and addr essed pr oper l y by command st af f .
The ai mof t hi s pr ocess i s t o gi ve super vi sor s val uabl e
i nf or mat i on t hat , i f r ecei ved ear l y, coul d i dent i f y pot ent i al
pr obl emof f i cer s bef or e mi sconduct act ual l y devel ops.
VIII. OFFICER TRAINING
The VIPD should develop comprehensive training programs for
new and experienced VIPD officers.
A. Pol i ce Academy Tr ai ni ng
Based on our i nvest i gat i on and di scussi ons wi t h t he Di r ect or
of Tr ai ni ng, t her e ar e no st andar d cur r i cul a or l esson pl ans f or
t r ai ni ng pr ovi ded t o new r ecr ui t s.
10
The VI PD s Recr ui t Rul es
and Pr ocedur es Manual ( Recr ui t Manual ) does not cont ai n any
subst ant i ve i nf or mat i on r egar di ng pol i ce t act i cs, pr act i ces,
pr ocedur es or pr ot ocol . The cont ent of each subj ect mat t er ar ea
i s l ef t t o t he di scr et i on of t he i nst r uct or . Ther e ar e no
st andar ds f or sel ect i on of i nst r uct or s, except t hat we wer e t ol d
t hat Assi st ant At t or neys Gener al ar e r equest ed t o pr ovi de
i nst r uct i on on l egal mat t er s, such as sear ch and sei zur e.
10
VI PD r ecr ui t s at t end a 26- week academy t r ai ni ng al ong
wi t h ot her t er r i t or i al l aw enf or cement agenci es, i ncl udi ng t he
Ter r i t or i al Mar shal s, Depar t ment of Pl anni ng and Nat ur al
Resour ces, and t he Taxi Commi ssi on.
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Mor eover , we under st and t hat t her e i s no st andar di zed or
f or mal i zed wr i t t en exami nat i on t hat each r ecr ui t must pass. I t
i s our under st andi ng t hat each i nst r uct or cr eat es hi s or her own
t est t o det er mi ne t he r ecr ui t s pr of i ci ency i n t he r el evant
subj ect mat t er ar ea.
We r ecommend t hat t he VI PD devel op st andar di zed cur r i cul a,
l esson pl ans, and wr i t t en t est s f or each sect i on of a r ecr ui t s
t r ai ni ng at t he pol i ce academy, i ncl udi ng, but not l i mi t ed t o,
use of f or ce, Four t h Amendment and ot her const i t ut i onal
r equi r ement s. Thi s t r ai ni ng shoul d al so i ncl ude r ol e- pl ayi ng and
i nt er act i ve exer ci ses r egar di ng si t uat i onal et hi cal and use of
f or ce scenar i os, i ncl udi ng de- escal at i on t echni ques, cul t ur al
di ver si t y and communi t y pol i ci ng. The exer ci ses shoul d i ncl ude
t r ai ni ng on i nt er act i ons wi t h per sons f r omdi f f er ent r aci al ,
et hni c, and r el i gi ous gr oups, per sons of t he opposi t e sex,
per sons of di f f er ent sexual or i ent at i ons, and per sons wi t h
di sabi l i t i es. The cur r i cul a and l esson pl ans shoul d i ncor por at e
compr ehensi ve and updat ed pol i ce pr act i ces and be appr oved by
l egal counsel and t he Pol i ce Commi ssi oner . Ther e shoul d be an
appr oved, st andar di zed and wr i t t en exami nat i on at t he end of t he
academy t o measur e an accept abl e l evel of pr of i ci ency and
compet ency i n al l ar eas cover ed by t he t r ai ni ng. Recr ui t s shoul d
be r equi r ed t o pass t he exami nat i on t o become a VI PD of f i cer . We
r ecommend t hat al l i nst r uct or s r ecei ve cer t i f i cat i on t o ser ve as
i nst r uct or s. Thi s cer t i f i cat i on can be obt ai ned t hr ough pr ogr ams
and semi nar s of f er ed by var i ous cer t i f yi ng agenci es t hr oughout
t he Uni t ed St at es.
B. Fi el d Tr ai ni ng
A st r uct ur ed f i el d t r ai ni ng pr ogr ami s essent i al f or
t r ai ni ng new r ecr ui t s. Fi el d t r ai ni ng f or new of f i cer s i s an
i nt egr al component of any compr ehensi ve of f i cer t r ai ni ng pr ogr am,
and mi ni mi zes t he r i sk of of f i cer s engagi ng i n pr obl emat i c
behavi or s, i ncl udi ng t he use of excessi ve f or ce.
Al t hough t he VI PD has a number of of f i cer s t hat ar e
desi gnat ed as Fi el d Tr ai ni ng Of f i cer s ( FTOs) , t her e i s no
pol i cy, st andar d or pr ocedur e f or sel ect i ng, t r ai ni ng, or
eval uat i ng an FTO. FTOs ar e sel ect ed by t he Ter r i t or i al Chi ef .
Ther e ar e no wr i t t en st andar ds f or an of f i cer t o qual i f y or t o be
sel ect ed as an FTO. I t i s our under st andi ng t hat af t er
gr aduat i on f r omt he pol i ce academy, new r ecr ui t s ar e assi gned t o
an FTO f or a pr obat i onar y year . Al t hough new r ecr ui t s accompany
an FTO on pat r ol , t her e i s no st r uct ur ed f i el d t r ai ni ng pr ogr am.
We r ecommend t hat t he VI PD devel op and i mpl ement a f i el d
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t r ai ni ng pr ogr am. The f i el d t r ai ni ng pr ogr amshoul d ut i l i ze
qual i f i ed FTOs t o super vi se and t r ai n new VI PD of f i cer s. FTOs
shoul d have at l east t hr ee year s exper i ence on t he VI PD.
Addi t i onal l y, FTO i nst r uct or s shoul d have compl et ed a cour se on
how t o ser ve i n t hat capaci t y. An FTO candi dat e s exper i ence,
compl ai nt hi st or y and i nt er per sonal ski l l s shoul d be consi der ed
as sel ect i on cr i t er i a. We r ecommend t hat t he VI PD t ake measur es
t o r ecr ui t and t r ai n qual i f i ed FTOs, i ncl udi ng pr ovi di ng
i ncent i ves t o cur r ent of f i cer s t o encour age t hemt o appl y t o
become FTOs. The VI PD shoul d devel op and i mpl ement a mechani sm
f or eval uat i ng FTOs and f or r emovi ng FTOs who f ai l t o per f or m
adequat el y, and whose act i ons whi l e ser vi ng as FTOs woul d have
di squal i f i ed t hemf r omsel ect i on.
C. I n- Ser vi ce Tr ai ni ng
I n addi t i on t o t he absence of any f or mal t r ai ni ng f or new
r ecr ui t s af t er t he pol i ce academy, VI PD does not have a
st r uct ur ed t r ai ni ng pr ogr amf or exper i enced of f i cer s.
We r ecommend t hat t he VI PD devel op and i mpl ement an i n-
ser vi ce t r ai ni ng pr ogr amf or al l of f i cer s. Consi st ent wi t h most
pol i ce depar t ment s t hr oughout t he count r y, VI PD shoul d pr ovi de
i n- ser vi ce t r ai ni ng t hat i ncl udes a mi ni mumof 40 hour s per year
of t r ai ni ng ( excl udi ng f i r ear ms r e- qual i f i cat i on) on pol i ce
t opi cs, such as: use of f or ce, f i r ear ms, def ensi ve t act i cs,
pol i ci es and pr ocedur es, cur r ent l egal i ssues or ot her i ssues
t hat ar e essent i al t o pol i ce wor k, sear ches and sei zur es, l egal
devel opment s and pol i ce i nt egr i t y. The VI PD i n- ser vi ce t r ai ni ng
shoul d i ncl ude de- escal at i on t echni ques f or i nt er act i ons wi t h
per sons wi t h ment al i l l ness and t hose who may be under t he
i nf l uence of dr ugs or al cohol . We r ecommend t hat of f i cer s
r ecei ve f i r ear ms t r ai ni ng bi annual l y f or al l ser vi ce weapons used
by VI PD of f i cer s. Al l VI PD per sonnel shoul d r ecei ve t r ai ni ng on
t he new compl ai nt pol i cy and pr ocedur es. We r ecommend t hat
t r ai ni ng be conduct ed by i nst r uct or s who have been t r ai ned and
cer t i f i ed t o be i nst r uct or s, and who ar e compet ent i n t he subj ect
mat t er .
We not e t hat one pot ent i al r esour ce f or t he VI PD i n
est abl i shi ng and i mpr ovi ng i n- ser vi ce and f i el d t r ai ni ng of f i cer
pr ogr ams may be t he l ongst andi ng t r ai ni ng and gr ant pr ogr ams
admi ni st er ed by ot her component s of t he Depar t ment of J ust i ce,
such as t he Of f i ce of J ust i ce Pr ogr ams. Whi l e t hese pr ogr ams ar e
compl et el y separ at e and i ndependent of t he Ci vi l Ri ght s
Di vi si on s i nvest i gat i ons, we woul d be pl eased t o pr ovi de you
- 27 -
wi t h cont act i nf or mat i on f or expl or i ng t he possi bi l i t y of such
assi st ance.
IX. CONCLUSION
We st r ongl y ur ge t he VI PD t o adopt t hese t echni cal
assi st ance r ecommendat i ons as i t r evi ses i t s pol i ci es and
pr ocedur es. We l ook f or war d t o wor ki ng wi t h you and t he VI PD as
our i nvest i gat i on pr oceeds. I f you have any quest i ons, pl ease do
not hesi t at e t o cont act me at ( 202) 514- 6255, J e Yon J ung at
( 202) 305- 1457 or Mi chael Fr azi er at ( 202) 307- 2715.
Si ncer el y,
Shanet t a Y. Cut l ar
Chi ef
Speci al Li t i gat i on Sect i on
cc: Ant hony J enki ns
Uni t ed St at es At t or ney
f or t he Vi r gi n I sl ands
/s/ Shanetta Y. Cutlar