Chapter 26
Crowd Control
Civil Disturbances and Labor Strikes
Abstract
This chapter provides security officers with the necessary techniques to control a crowd by observing the spectators rather than the event itself. Security officers need to stay on the fringe of the crowd and avoid going inside the crowd. An important aspect of crowd control is to keep the crowd leaders and troublemakers under constant surveillance so as to prevent any negative actions from escalating.
Keywords
Civil disorder; Loss of identity; Psychological factors affecting a crowd; Unfair labor practicesMost security officers will encounter crowds every day in the normal duties they perform. Usually these crowds will be well behaved, such as in a shopping mall, school, or athletic event. Unfortunately, from time to time, crowds will become unruly, loud, and potentially very dangerous.
A crowd can best be described as a group of people whose current motive is the participation in some event, which is normally nonviolent in nature. A mob, on the other hand, is a crowd or group of people whose current motive is participating in some event that is often potentially violent, particularly as the mob becomes angry about an event or incident. A mob will normally need to be dispersed by security or law enforcement personnel. A mob that begins to act violently is a riot. Riots usually involve physical attacks on persons and destruction and theft of property.
Civil disorders are actions by a group of people whose motive is to gain attention for a certain belief or cause by violating the law. Often, this behavior is not violent in nature but will require the arrest of persons involved in the disorder. During the 1960s and 1970s, civil disobedience was a common practice to gain attention for civil rights issues and protests against the Vietnam War. More recently, civil disobedience has been directed against abortion clinics, war, and other political motivators.
Causes of civil disorder
Causes of civil disorder are generally of two types:
1. Spontaneous
2. Planned response
Spontaneous
Spontaneous civil disorders occur as a reaction to an incident or event. An example may be a peaceful march that turns violent. Although the initial parade or march was not planned to become violent, an incident or reaction from counter-demonstrators may spark violence.
Planned responses
Planned responses of civil disorder are protests that are planned to bring attention and arrests. The current political climate has lent itself to more forceful political demonstrations, where at least some elements of the demonstration are looking to create trouble or get arrested to make a point.
Control of crowds
If a crowd is orderly, is not violating any laws, and is not posing a threat to another person or property, there is little a security officer should do other than continue to observe the crowd and to stay alert to any potential signs of violence. A crowd could develop into a mob very quickly, which can then turn into a riot.
A usual characteristic of a crowd is its willingness to obey the law. A crowd is a large number of persons who are temporarily gathered into a close body without very strict organization. For security officers, crowds will normally be encountered in shopping malls, athletic events, concerts, labor work strikes, employees exiting a factory, students leaving a school, etc. It is very important for the security officer to know the following:
• Why is the crowd gathered?
• What are the characteristics of the crowd and who are the leaders?
• What are the physical surroundings of the area where the crowd is gathered?
For security officers who interact with crowds on a regular basis, it is important to attempt to make their presence known while at the same time remaining somewhat inconspicuous. A security officer should quietly move through a crowd observing and noting any changes in the mood or the attitude of the crowd. This allows an officer to respond quickly to any emergency situation and to spot possible troublemakers quickly. Any large crowd could develop into a mob if a leader provokes the crowd or a spontaneous incident incites the crowd.
It is essential that if a security officer is working at an entertainment complex, such as an athletic event or music concert, that they pay close attention to the crowd and not watch the event. Troublemakers usually will give early indicators of possible problems. If a security officer identifies possible troublemakers early in the event, their supervisors should be notified in an effort to anticipate possible violence and to take any necessary precautionary steps to prevent a disruption. This may include issuing a verbal warning to a person or persons that, if their unruly behavior continues, they will be removed from the event.
Causes of civil disorder
Civil disorders result from either spontaneous, unplanned incidents that turn a crowd into a mob or from a planned, orchestrated event where the primary objective is to incite violence.
Types of gatherings and potential for civil disorder
Political gatherings
Political gatherings are usually partisan in nature. Namely, if you are not a member of the political party, you are not a participant. However, protesters or potential troublemakers may attend in an effort to disrupt the gathering. These could include more radical elements of the group holding the original demonstration or opponents of the original group.
If problems develop, party leaders who have the support of the crowd should be called upon to make announcements in an effort to quell any disturbances. Security officers should never enter into any debate involving politics or express a party preference.
Athletic events
Usually at athletic events, there are two well-defined divisions whose teams are competing with one another. Feelings of the respective fans will often run high and reach an extreme emotional level during an argument or fight involving players and/or fans. The consumption of alcoholic beverages at sporting events can lower inhibitions and increase the chance of a friendly sports rivalry among fans turning into violence.
If physical altercations develop, security officers will want to separate and isolate the combatants as quickly as possible.
Prior to any hint of trouble, security officers should be constantly alert for persons using these events to initiate a riot or to stir up emotions against police and security officers. At the first sign of trouble, assistance should be called immediately. A fast show of force may discourage further trouble. Violence often spreads into parking lots after events as fans continue to engage one another after the event, so security officers should not let their guard down because the event has ended.
Parades and marches
Parades and marches have become a form of demonstration by militant groups, activists, religious students, and political parties. Intense feelings of emotions often lead to disturbances between marchers and bystanders. Often, onlookers will heckle marchers, which often leads to violence. Again, the primary role of security officers is ensuring separation between the two opposing groups.
Psychological factors affecting crowds
Although most persons who are part of a crowd will not be acting in unison with other crowd members, certain psychological factors will often affect crowd behavior.
Protection
Many people may feel that they are protected by being part of a large crowd. Because they feel secure, individuals may often begin to display behavior that they normally would never show, such as shouting obscenities or throwing objects. This is often the case during highly charged emotional events, such as demonstrations or strike situations.
Loss of identity
Many persons will often join a crowd in order to lose their identity and to blend in with other people. A person may believe that by being part of a crowd they can behave improperly and not worry about being punished or apprehended.
Emotional release
Individuals may decide to act aggressively as part of crowd and release a great amount of emotional frustration because they feel they cannot be identified.
Traits of a crowd
The following traits are normally present in crowds:
1. Concentration of people gathered for a common purpose for normally a short period of time (i.e., ballgame)
2. No real organization
3. No set unity
4. A mob can be formed by a crowd if persons are aroused
5. A leader may control the group
6. Individuals feel the loss of identity
7. Individuals may become “caught up” and act out what they normally would not do
Conduct by a mob
Although mobs may form spontaneously, they usually are characterized by the following traits:
1. Disorganized
2. Led by one individual or group of individuals
3. Ignore instructions to disband
4. Loud shouting and chanting
5. Attempt to “bait” security officers or others into a confrontation
6. Once violence starts, it is difficult to control
7. Destruction of property and disruption of all peaceful activities in its wake
8. A loss of personal identity
9. Uncontrolled action by individuals who would not normally engage in such action
10. Physical beatings, bombings, and looting
11. Total disrespect for peace and order
A mob is much like a tornado: you are not sure of its path and it normally leaves a large amount of destruction in its wake.
Role of security in planning for crowd control
Generally, security personnel will play an active, key role in any emergency situation involving a mob or civil disturbance. Security officers may be called upon to notify local emergency services of an emergency, assist in the evacuation of personnel, render first aid to injured employees, or announce emergency instructions over the public address system. In certain situations, the security officer on duty may be required to assume primary responsibility for initiating the emergency response.
Civil disturbance
For most of the 1990s and early 2000s, civil riots or disturbances in the United States were not as prevalent as those that occurred during the 1960s and the 1970s. In those years, the country was undergoing rapid changes with regards to the civil rights movement and opposition to the Vietnam War. In recent years, opposition to “globalization” and war in the Middle East have led to some increase in civil disturbances.
However, in September 2011, a protest movement began in New York City’s financial district, known as “Occupy Wall Street”, quickly spread to many other large U.S. and even international cities. The Occupy movement is a more recent example of what some would say was an organized attempt at civil disturbance (Figure 26.1).
For every emergency discussed in this chapter, preplanning is the single most effective means for minimizing loss during a civil disturbance.
Organizations must evaluate their own unique situations:
1. Is the business or operation located in an area that is susceptible to civil violence?
2. What type of incident could stimulate a disturbance?
3. At what point will the organization implement its Civil Disturbance Emergency Plan?
4. Can the facility be adequately protected or shielded from damage with additional security personnel, fencing, and boarding-up of windows and doors?
5. How much time is needed to address protection needs?
Crowds turn into mobs when a few leaders or agitators incite the group. Individuals then lose their personal identity and become ruled by emotion. Feeling that they are anonymous, many people will then begin to riot and loot surrounding businesses. Riots are not confined to large metropolitan areas. They can occur in any city or town. When riots occur, law enforcement and area protection services will be strained to the limit and may be unable to respond to all emergency calls.
If a riot reaches catastrophic levels, the loss to an organization equals the value of all buildings and equipment. In addition, losses associated with business interruption could be significant.
To reduce the risk potential at a facility, management representatives can start by assisting in civic projects that are designed to relieve community tension. Meeting with local law enforcement personnel and other businesses in the area to coordinate protection strategy is a key element in emergency preplanning. Be aware of the social climate in the area and watch for danger signals that may indicate the need to initiate emergency protective measures.
If rumors of an impending disturbance are learned, try and obtain verification and an indication of severity so that the correct plan of action can be taken. Consideration for sending employees home early and for the removal of valuables susceptible to looting should be discussed.
Measures to protect the building, which are detailed in the Chapter 11 of this manual, will greatly assist in protecting the facility. Because civil disturbances often develop rapidly and with little warning, a detailed physical security survey should be conducted on an annual basis at each facility to measure the effectiveness of protection measures.
Spontaneous civil disorder
A spontaneous civil disorder can occur without any advance notice. In recent years, cities such as Cincinnati and New York have had neighborhoods erupt after a shooting involving a police officer and a fleeing suspect. No matter the events, when a situation quickly develops, there will be little time for security personnel to react. Often, these events will be much more dramatic and disruptive during the hot months of summer as opposed to wintertime. Seldom do disorders occur during inclement weather. If weather conditions do not deter riotous behavior, security personnel must make the appropriate notifications of client personnel. Security officers should review the client notification list frequently to ensure the list is current and up-to-date.
Often, if a civil disorder becomes extremely disruptive and violent, employees will need to be contacted and advised not to report to work and to wait for further instructions.
Crowd control responses
When it becomes apparent that a crowd is developing into a mob and a riot is beginning to develop, additional security officers and law enforcement personnel must be called upon immediately. Because of time delay or the immediate threat of violence, security officers may need to take action to quell any disturbance. This may include initiating one or more of the following actions:
1. Removing crowd leaders, peacefully if at all possible.
2. Attempting to break up the crowd into smaller units.
3. Deploying a strong show of force by security officers and police, which may include the use of police dogs and horse-mounted police officers.
4. Using a public address system to instruct the crowd to disperse.
5. Randomly arresting and/or detaining certain troublemakers.
6. Talking to a recognized leader and providing options.
7. Providing an escape route for individuals to use when dispersing the crowd.
Summary of actions for security officers
1. Observe spectators rather than the event.
2. Ignore “baiting”. Keep those persons under constant observation.
3. Do not bluff or threaten. Follow through on all orders.
4. Remain impartial.
5. Avoid unnecessary conversation.
6. Stay on the fringe of the crowd. Do not go inside the crowd.
7. Avoid bodily contact.
8. Show proper respect for religious symbols, tags, etc.
9. Know what to expect from a mob.
10. Keep crowd leaders and troublemakers under constant surveillance.
Handling disputes
Strikes/labor disturbances
Security officers are employed during labor strikes to maintain peace and protect the assets of the owners of the business whose employees are not working due to a “lockout” or strike called by the workers. Feelings usually run high and emotions will often lead to disorder, especially if replacement workers are being escorted across picket lines or if product is being shipped out. Security officers, although working for management, want to avoid obviously taking sides in an issue; rather, they should function to keep the peace. However, all security officers must remember by whom they are employed and what their clients’ expectations are.
In 1935, after many years of violent work stoppages in the nation’s coal fields, railroads, and automotive factories, U.S. Congress passed the National Labor Relations Act. This law, also referred to as the Wagner Act, gave workers the right to representation and described specific management practices that were unfair. In 1947, the Taft–Hartley Act, also called the Labor Management Relations Act, amended the earlier 1935 law and identified unfair labor practices that could not be engaged in by unions.
For security personnel, the most important areas of consideration to be familiar with are those actions that could be considered unfair. If security personnel were to engage in any behavior judged to be an unfair labor practice, the company employing these security officers could be cited and fined.
All unions will have some sort of contract with the company that employs the workers. The contract will usually cover a wide variety of subject areas including wages, benefits, work rules, and discipline.
Whenever a disagreement occurs between the union and the company over interpretation of the contract, the two sides normally arrange a series of meetings to discuss the dispute. This is normally considered part of a grievance hearing.
Unfair labor practices—unreasonable conduct
If the actions of a security officer are considered to be unreasonable, such as searching the locker or vehicle of an employee when a policy or practice concerning searches has never been addressed, a charge may be made by the union representing the employee. The actions and behaviors of security officers must always be judged to be reasonable. Provided the security officer’s actions are judged to have been consistent with existing policies, procedures, or past practice, a claim of unreasonable conduct will probably not be substantiated.
Statements made by employees
Security personnel are not required to advise a suspect of their constitutional rights before questioning. Provided statements given to security personnel by employees were given voluntarily, without any threats or promises, these statements would be admissible in a discipline hearing.
Search and seizure
Employees in the workplace may be afforded some basic rights to privacy that are considered reasonable. Areas such as lockers, desks, vehicles, etc., may fall under this category. Some companies inform their employees at the time of hiring that desks, lockers, vehicles, etc., are subject to search at the company’s discretion.
Surveillance
Surveillances are often a very effective tool used by all security investigators. However, if a covert or hidden surveillance of a restroom was initiated by security personnel, in all likelihood any evidence uncovered as a result of the covert surveillance would be dismissed by arbitrators. Most arbitrators would consider surveillance of this type extremely offensive and an invasion of an employee’s right to privacy.
Union representation during investigative interviews
Courts have generally ruled that there is a right under the National Labor Relations Act for an employee to have union representation during a management interview of a union member when there is the likelihood that discipline to the employee will result. The case that is generally regarded as the cornerstone of this right is called the Weingarten decision. In the Weingarten case, the Court rules that when an employee is being interviewed and he/she believes that the information discussed during the interview may lead to discipline, up to and including termination, the employee has the right to request that a union representative be present during the interview. An employer must grant the union representation if requested but is under no duty to discuss the matter or bargain with the union representative.
Strikes
Security personnel will be relied upon a great deal in a strike situation in order to maintain order and protect company property. Because of the serious impact of strikes on the public, courts have ruled that strikes are to be regulated by law. Laws pertaining to strikes are far from settled. New laws continue to shape strike behavior on the part of management and labor.
Under the law, strikes fall into three major categories: economic strikes, unfair labor practice strikes, and illegal or unprotected strikes. The rights of both labor and management depend on the kind of strike involved.
An economic strike is over wages, hours, or working conditions. Economic strikers may be permanently replaced by replacement workers, which occurred during the air traffic controllers’ strike in 1980. President Ronald Reagan ordered all of the striking air traffic controllers to return to work or risk being permanently fired. The union representing the striking controllers decided to remain on strike. The controllers who refused to return to work were subsequently fired. Many labor law experts believe the air traffic controllers’ strike in 1980 changed the way management deals with economic strikes.
An unfair labor practice strike is one that is caused by just that. These strikers are entitled to reinstatement, even though it may be necessary to discharge the replacement workers.
A strike in violation of a nonstrike clause in the agreement has been held to be an unprotected activity, which is prohibited by law, and such strikers may be discharged or otherwise disciplined.
Employer’s rights during strikes
An employer may not discharge employees for planning a strike. Once a strike has begun, management may use every legal means to break the strike. The company operation can be maintained by hiring replacement workers or by having supervisors perform the work. Protection and security is often given to those employees who continue to work.
Role of security during a strike
Security personnel will be relied on extensively during a strike to protect the facility and the employees who continue to work. During most strikes, security personnel will be permitted to cross the picket lines by striking workers without a great deal of threats or intimidations from strikers. However, if the strike is an extremely bitter one where emotions are high on both sides, security personnel may also be targets for violence.
Security personnel must demonstrate great restraint and discipline during a strike. Responding to verbal threats will serve only to heighten tension and may be the cause of physical violence. When crossing picket lines, security personnel should not demonstrate an aggressive or cocky attitude. An attitude displaying patience, restraint, and calmness will serve the security officer well and will probably allow security personnel to cross the picket line.
Security personnel must remember that while they may need to display an outward attitude and demeanor of being objective during a strike, management has hired security and pays their wages. Security personnel are to enforce and carry out the legal duties and responsibilities assigned to them during a strike. Remember, eventually strikes will end, and workers usually return to work.
Summary
• Most security officers will encounter crowds every day in the normal duties they perform. Usually these crowds will be well behaved, such as in a shopping mall, school, or athletic event. Unfortunately, from time to time, crowds will become unruly, loud, and potentially very dangerous.
• A mob, on the other hand, is a crowd or group of people whose current motive is participating in some event that is often potentially violent, particularly as the mob becomes angry about an event or incident. A mob will normally need to be dispersed by security or law enforcement personnel.
• Civil disorders are actions by a group of people whose motive is to gain attention for a certain belief or cause by violating the law. Often, this behavior is not violent in nature but will require the arrest of persons involved in the disorder. During the 1960s and 1970s, civil disobedience was a common practice to gain attention to the civil rights issue and protest against the Vietnam War. More recently, civil disobedience has been directed against abortion clinics, war, and other political motivators.
• Spontaneous civil disorders occur as a reaction to an incident or event. An example may be a peaceful march that turns violent.
• Planned responses of civil disorder are protests that are planned to bring attention and arrests. The current political climate has lent itself to more forceful political demonstrations where at least some elements of the demonstration are looking to create trouble or get arrested to make a point.
• If a crowd is orderly, is not violating any laws, and is not posing a threat to another person or property, there is little a security officer should do other than continue to observe the crowd and to stay alert to any potential signs of violence. A crowd could develop into a mob very quickly, which can then turn into a riot.
• For security officers who interact with crowds on a regular basis, it is important to attempt to make their presence known while at the same time remaining somewhat inconspicuous. A security officer should quietly move through a crowd, observing and noting any changes in the mood or the attitude of the crowd.
• Political gatherings are usually partisan in nature. Namely, if you are not a member of the political party, you are not a participant. However, protesters or potential troublemakers may attend in an effort to disrupt the gathering.
• Usually at athletic events, there are two well-defined divisions whose teams are competing with one another. Feelings of the respective fans will often run high and reach an extreme emotional level during an argument or fight involving players and/or fans. The consumption of alcoholic beverages at sporting events can lower inhibitions and increase the chance of a friendly sports rivalry among fans turning into violence.
• Parades and marches have become a form of demonstration by militant groups, activists, religious students, and political parties.
• Many people may feel that they are protected by being part of a large crowd. Because they feel secure, individuals may often begin to display behavior that they normally would never show, such as shouting obscenities or throwing objects.
• Generally, security personnel will play an active, key role in any emergency situation involving a mob or civil disturbance. Security officers may be called upon to notify local emergency services of an emergency, assist in the evacuation of personnel, render first aid to injured employees, or announce emergency instructions over the public address system. In certain situations, the security officer on duty may be required to assume primary responsibility for initiating the emergency response.
• In September 2011, a protest movement known as “Occupy Wall Street” began in New York City’s financial district and quickly spread to many other large U.S. and even international cities. This is a recent example of what some would say was an organized attempt at civil disturbance.
• To reduce the risk potential at a facility, management representatives can start by assisting in civic projects that are designed to relieve community tension. Meeting with local law enforcement personnel and other businesses in the area to coordinate protection strategy is a key element in pre-emergency planning.
• When it becomes apparent that a crowd is developing into a mob and a riot is beginning to develop, additional security officers and law enforcement personnel must be called upon immediately. Because of time delay or the immediate threat of violence, security officers may need to take action to quell any disturbance.
• Security officers are employed during labor strikes to maintain peace and protect the assets of the owners of the business whose employees are not working due to a “lockout” or strike called by the workers. Feelings usually run high and emotions will often lead to disorder, especially if replacement workers are being escorted across picket lines or if product is being shipped out.
Exercises
1. You are working security at a professional football game and some obnoxious fans begin yelling at you. What do you do if their yelling escalates to the point where they start yelling profanities?
2. You are working at a plant that is being closed in 90 days and employees are demonstrating. They ask you what you think of a company that is closing a profitable plant. What do you say?
3. You see one group of fans at an athletic event begin fighting with other fans. What are the next three things you should do to diffuse the situation?
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