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Managing a Multijurisdictional Case 80828_Cover R5 10/7/04 11:40 PM Page 1 Managing A Multijurisdictional Case GERARD R. MURPHY CHUCK WEXLER WITH HEATHER J. DAVIES MARTHA PLOTKIN 1120 Connecticut Avenue, NW Suite 930 Washington DC, 20036 Phone: 202-466-7820 Fax: 202-466-7826 www.policeforum.org 80828_i-200.R7 10/8/04 12:07 AM Page i Managing a Multijurisdictional Case: Identifying the Lessons Learned from the Sniper Investigation GERARD R. MURPHY AND CHUCK WEXLER WITH HEATHER J. DAVIES AND MARTHA PLOTKIN A Report Prepared by the Police Executive Research Forum for the Office of Justice Programs U.S. Department of Justice OCTOBER 2004 80828_i-200.R7 10/8/04 12:07 AM Page ii This project, conducted by the Police Executive Research Forum (PERF), was supported by Cooperative Agreement #2003-DD-BX-0004 by the U.S. Department of Justice, Office of Justice Programs’ Bureau of Justice Assistance. Points of view or opinions contained in this document are those of the authors and do not necessar- ily represent the official position or policies of the U.S. Department of Justice or the members of PERF. Websites and sources listed provide information useful at the time of this writing, but the authors do not endorse any information of the sponsor organization or other information on the websites. © Police Executive Research Forum, U.S. Department of Justice Police Executive Research Forum Washington, DC 20036 United States of America October 2004 ISBN: 1-878734-82-2 Library of Congress: 2004109330 Photos courtesy of AP Worldwide Photos and the Bureau of Alcohol, Tobacco, Firearms and Explosives Cover design and layout by Nelson Design Group, Inc. 80828_i-200.R7 10/8/04 12:07 AM Page iii CONTENTS FOREWORD..............................................................v APPENDIX D ........................................................133 Serial Sniper Law ACKNOWLEDGMENTS..............................................vii APPENDIX E.........................................................135 INTRODUCTION........................................................1 Chief Charles A. Moose’s Letter Requesting Federal Assistance PROLOGUE ..............................................................7 The Sniper Investigation: A Timeline of Events Appendix F ..........................................................137 Joint Operations Center Floor Plan Template CHAPTER ONE .......................................................13 High-Profile Investigations Appendix G..........................................................139 Fairfax County (VA) and Prince William CHAPTER TWO .......................................................19 County (VA) Police Department Briefings Leadership Provided to Officers CHAPTER THREE....................................................35 APPENDIX H ........................................................151 Federal Law Enforcement Resources Arlington County (VA) Police Department Special Order CHAPTER FOUR .....................................................49 Managing Investigations APPENDIX I..........................................................157 Montgomery County (MD) Police CHAPTER FIVE .......................................................61 Department Press Pass #1341 Information Management APPENDIX J .........................................................159 CHAPTER SIX.........................................................77 Montgomery County (MD) Police Local Law Enforcement Operations Department: How To Be a Good Witness CHAPTER SEVEN....................................................89 APPENDIX K.........................................................161 Media Relations Prince William County (VA) Community Services Board: CHAPTER EIGHT...................................................103 Dealing with the Sniper Attacks Community Issues APPENDIX L.........................................................165 CHAPTER NINE ....................................................113 Montgomery County (MD) Public Schools, Final Thoughts Emergency Response Plan REFERENCES.......................................................119 APPENDIX M ........................................................193 Arlington County (VA) Public School APPENDIX A.........................................................121 Superintendent Robert G. Smith’s Letter Individuals Interviewed During the to Parents Project by PERF Staff ABOUT THE AUTHORS...........................................195 APPENDIX B ........................................................125 List of Focus Group Participants ABOUT THE OFFICE OF JUSTICE PROGRAMS ..........198 APPENDIX C ........................................................127 ABOUT THE POLICE EXECUTIVE SNIPEMUR Task Force Recommendations RESEARCH FORUM...............................................200 for State and Local Law Enforcement Agencies CONTENTS ■ iii 80828_i-200.R7 10/8/04 12:07 AM Page iv iv 80828_i-200.R7 10/8/04 12:07 AM Page v FOREWORD ith the Washington, D.C. region still high-profile investigation in the future—a strategy reeling from the September 11 terror- that can be tailored to the unique needs and W ist attack on the Pentagon and the dis- resources of the agencies’ communities. covery of anthrax-tainted letters in the area, another form of terrorism swept through the It was for this reason that the Office of Justice nation’s capital in October 2002: a killing spree Programs (OJP) contracted with the Police that targeted victims indiscriminately. The sniper’s Executive Research Forum (PERF) to conduct an victims were shot with a high-powered rifle from exhaustive review of the events of October 2002, col- long distances, leaving no eyewitnesses and very lecting information from the law enforcement pro- little information for law enforcement. fessionals who were on the front lines of the investi- gation—information about the critical lessons they The shootings spanned eight local jurisdictions, feel could benefit other agencies in the future. and involved more than a thousand investigators from local and state agencies, as well as members Managing a Multijurisdictional Investigation: of the Federal Bureau of Investigation (FBI); Identifying the Lessons Learned from the Sniper Bureau of Alcohol, Tobacco, Firearms and Investigation serves as a guide for law enforcement Explosives (ATF); the U.S. Marshals Service; the executives, managers and investigators who must U.S. Secret Service and other federal law enforce- be prepared to address key problems and concerns ment agencies. The result was what some believe is should a similar incident occur in their jurisdic- the largest multijurisdictional, multi-agency inves- tion. Moreover, with local and state law enforce- tigation in our country’s history—an investigation ment assuming a larger responsibility in the fight that can serve as a case study of cooperation against terrorism, we hope this manual can assist among local, state and federal law enforcement. every agency in the country in preparing for any While the chief executives most affected by the high-profile multijurisdictional criminal investi- sniper case—and those under their command— gation, including one that involves terrorism. This developed ad hoc protocols for working together, report provides law enforcement agencies with other agencies now have in this report the compre- recommendations for solving both technical and hensive information to help them anticipate and practical problems such as coordinating investiga- resolve many obstacles to future collaboration. tive resources, fostering communication within Law enforcement agencies at every level of govern- and between departments, accessing federal law ment must learn from the sniper investigation enforcement resources, releasing information to team’s successful approaches, and address the the community and the media, and turning raw many issues it identified that require a thoughtful data into meaningful intelligence. and thorough strategy for performing a complex, FOREWORD ■ v 80828_i-200.R7 10/8/04 12:07 AM Page vi PERF, with funding from the Bureau of Justice experiences to inform other authorities of the Assistance (BJA), Office of Justice Programs, con- challenges they might face in a similar investiga- ducted more than 100 interviews with representa- tion. OJP believes this crucial report will enable tives of every law enforcement agency that was law enforcement agencies to respond swiftly, cohe- prominently involved in the investigation, as well sively and effectively when managing high-profile, as with prosecutors, government officials and multi-agency criminal investigations. school leaders. The purpose of the project was to identify the “lessons learned” from the task force investigation by detailing the successful strategies it used for resolving problems, as well as discussing the challenges that were never fully met. The result is an unparalleled and comprehensive guide for how to successfully plan and manage a high-pro- Deborah J. Daniels file investigation that crosses multiple jurisdic- Assistant Attorney General tional lines. The report does not second-guess the Office of Justice Programs actions or decisions of officials, but relies on their U.S. Department of Justice vi ■ FOREWORD 80828_i-200.R7 10/8/04 12:07 AM Page vii ACKNOWLEDGMENTS e want to thank the many individuals The Maryland State Police and the Howard County who contributed to this Bureau of (MD) Police Department provided valuable infor- W Justice Assistance-supported report. mation. In Virginia, the State Police, the Arlington Every individual who
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