DRAFT UNIVERSITY OF CALIFORNIA Response to Protests on UC Campuses Response to Protests on UC Campuses A Report to President Mark G. Yudof Dean Christopher F. Edley, Jr. General Counsel Charles F. Robinson May 4, 2012 Draft—For Public Comment Draft—For Public Comment Table of Contents EXECUTIVE SUMMARY....................................................... 1 IV. Hiring and Training ...................................................... 44 A. Police Hiring ........................................................ 45 INTRODUCTION ................................................................... 4 1. Background ................................................. 45 I. Background on Protest and Policing 2. Recommendation ........................................ 46 at the University of California ........................................ 6 B. Police Training .................................................... 47 II. Background Principles ................................................... 8 1. Background ................................................. 47 III. Methodology and Process ........................................... 10 2. Recommendation ........................................ 50 IV. Themes ....................................................................... 11 C. Administrator Training ......................................... 51 V. UC Police Departments Are Essential 1. Background ................................................. 51 On Our Campuses ...................................................... 14 2. Recommendation ........................................ 52 V. Communication with Protesters DISCUSSION AND RECOMMENDATIONS ....................... 16 and the Campus Community ...................................... 53 I. Explicit Policy Focus on Civil Disobedience A. Coordination and Communication with and First Amendment Rights ....................................... 16 Protesters in Advance of Planned Protests ........ 53 A. Background ......................................................... 17 1. Background ................................................. 53 B. Recommendation ................................................ 19 2. Recommendation ........................................ 55 II. Opening Lines of Communication B. Communicating With Demonstrators and Building Relationships .......................................... 20 During Protest Events ......................................... 56 A. Increasing Regular Avenues for 1. Background ................................................. 56 Communication with the Administration .............. 20 C. Communications with the Broader 1. Background ................................................. 20 Campus Community ........................................... 59 2. Recommendation ........................................ 22 1. Background ................................................. 59 B. Building Familiarity with the Campus Police 2. Recommendation ........................................ 59 and with Rules Governing Protest Activity .......... 22 VI. Response During Events ............................................ 60 1. Background ................................................. 23 A. Alternatives to Arrest or Force ............................ 60 2. Recommendation ........................................ 24 1. Mediation .................................................... 60 III. Defining Roles of Administrators and Police (a) Background ......................................... 60 With Respect to Responses to Civil Disobedience ..... 27 (b) Recommendation ................................ 61 A. Administrator and Police Coordination ................ 27 2. De-escalation Techniques .......................... 62 1. Background ................................................. 27 (a) Background ......................................... 62 (a) Police Policies, Incident Command System, NIMS, and SEMS .................. 27 (b) Recommendation ................................ 64 (b) Event Response Teams ...................... 28 3. Administrative Citation ................................ 65 (c) Lack of Formal Coordination (a) Background ......................................... 65 Between Police and Administrators (b) Recommendation ................................ 66 During Events ...................................... 32 B. Response Options .............................................. 67 2. Recommendation ........................................ 33 1. Response Option (Use of Force) B. Assistance from Other Police Departments ........ 40 Framework .................................................. 67 1. Background ................................................. 40 (a) Background ......................................... 68 2. Recommendation ........................................ 43 (b) Recommendation ................................ 77 Draft—For Public Comment i 2. Procurement of Equipment ......................... 80 (a) Background ......................................... 80 (b) Recommendation ................................ 81 3. Evaluation of Safety of Pepper Spray ......... 83 (a) Background ......................................... 83 (b) Recommendation ................................ 84 VII. Documenting Activity During Demonstrations ............. 85 A. Observers ............................................................ 85 1. Background ................................................. 85 2. Recommendation ........................................ 86 B. Video Recording Events ...................................... 87 1. Background ................................................. 87 2. Recommendation ........................................ 89 C. Reporting By Police ............................................. 90 1. Background ................................................. 90 2. Recommendation ........................................ 91 VIII. Post-Event Review ...................................................... 92 1. Background ................................................. 92 2. Recommendation ........................................ 94 IX. Implementation ............................................................ 97 1. Background ................................................. 97 2. Recommendation ........................................ 98 APPENDIX A – RECOMMENDATIONS ........................... 100 APPENDIX B – INTERNAL UNIVERSITY OF CALIFORNIA INTERVIEWS ....................................... 105 APPENDIX C – EXTERNAL INTERVIEWS ...................... 114 APPENDIX D – LITERATURE REVIEWED ...................... 116 APPENDIX E – UCSF SCHOOL OF PHARMACY STUDY......................................................... 122 Draft—For Public Comment ii Executive Summary After physical conflict erupted between police and students during demonstrations at UC Berkeley and UC Davis in November 2011, University President Mark G. Yudof asked Vice President and General Counsel Charles F. Robinson and Berkeley Law School Dean Christopher F. Edley, Jr. to review existing policies and practices regarding the University’s response to demonstrations and civil disobedience. This review was not intended as a fact-finding investigation into the November 2011 protests, or into any other particular incident. Other reviews have been tasked with that objective. Rather, this review was aimed at identifying best practices to inform the University’s response to future demonstrations. Since work on the review—and this resulting Report—began, additional clashes on other campuses have underscored the need for this analysis. This Report is premised on the belief that free expression, robust discourse, and vigorous debate over ideas and principles are essential to the mission of our University. The goal of this Report is to identify practices that will facilitate such expression—while also protecting the health and safety of our students, faculty, staff, police, and the general public. For some campus administrators and police, this will require a substantial shift away from a mindset that has been focused primarily on the maintenance of order and adherence to rules and regulations. For some protestors, this will require taking more responsibility for their activities as well, including by educating themselves about protest-related rules and considering the impact acts of civil disobedience can have on others in the campus community. In developing this prospective framework for responding to protests and civil disobedience, the authors examined existing University policies and practices on speech, demonstrations, and use of force by police; the opinions of students, faculty, administrators, staff, and police on all ten campuses; and the views of academics and other experts on speech, civil liberties, and law enforcement. The objective has been to be as broad and fair as possible in collecting information in order to develop a thoughtful and fact-based Report. Ultimately, the Report arrives at 50 recommendations in nine areas: 1. Civil Disobedience Challenges. The Report points out the need for the University to define and communicate more clearly the free speech rights and responsibilities of all members of the University community. In particular, the University and individual campuses should amend their policies in order to recognize explicitly the historic role of civil disobedience as a protest tactic. Those policies should also make clear, however, that civil disobedience by definition involves violating laws or regulations, and that civil disobedience