Criminal Justice Information Services (CJIS) Division Uniform Crime Reporting (UCR) Program Hate Crime Data Collection Guidelines And Training Manual Version 2.0 Document Date: 2/27/2015 Prepared by: Law Enforcement Support Section (LESS) Crime Statistics Management Unit (CSMU) CHANGE DESCRIPTIONS Revision Change Description Date 1.0 Initial Release 12/19/2012 2.0 • Additions of new bias types, definitions, and scenarios for 2/27/2015 the religion and the race/ethnicity/ancestry bias categories scheduled for implementation in 2015. • Reorganization of some material. • Numbering of manual sections for ease of reference. Preface On June 5, 2013, the CJIS Advisory Policy Board (APB) approved a motion to modify the Uniform Crime Reporting (UCR) Program’s Hate Crime data collection procedures to begin including all self-identified religions in the United States as listed in the Pew Research Center’s Pew Forum on Religion and Public Life (2008) and the U.S. Census Bureau’s Statistical Abstract (2012). The APB also approved a motion to modify the UCR Hate Crime data collection procedures to include an anti-Arab bias motivation. The FBI Director authorized these motions on June 28, 2013. The FBI UCR Program, which collects and publishes information about crimes motivated by bias, has modified its data collection accordingly by defining the specific religions and the ethnicity/ancestry Arab, as well as providing corresponding examples. The UCR Program collaborated with members of the Arab, Hindu, Muslim, and Sikh communities to develop the corresponding training scenarios, as well as Appendix F. This publication is intended to assist law enforcement agencies in establishing an updated hate crime training program so their personnel can collect and submit hate crime data to the FBI UCR Program. In addition to providing suggested model reporting procedures and training aids for capturing the new bias motivations, the manual is written to raise law enforcement officers’ awareness of the hate crime problem. The FBI UCR Program is grateful to all who have assisted in preparing this publication. Version 2.0, 2/27/2015 ii Table of Contents 1.INTRODUCTION .................................................................................................................. 1 1.1 Purpose and Scope ........................................................................................................ 1 1.2 The Nature of Hate Crime .............................................................................................. 1 1.3 Background ................................................................................................................... 1 1.3.1 Legislative Mandate to Report Hate Crime ............................................................................................ 1 1.3.2 Developing a Collection Approach ......................................................................................................... 2 1.3.2.1 The Hate Crime Data Collection is an Adjunct to the UCR Collection .................................................... 2 1.3.2.2 The Types of Bias Motivation to be Reported are Limited ..................................................................... 2 1.3.2.3 Two-Tier Decision-Making Process......................................................................................................... 2 1.3.2.4 Amendments Expand the Hate Crime Data Collection .......................................................................... 3 1.4 Conclusion .................................................................................................................... 3 2.CRITERIA OF A HATE CRIME ................................................................................................ 4 2.1 Bias Motivation ............................................................................................................. 4 2.2 Objective Evidence That the Crime was Motivated by Bias ............................................ 6 2.3 Cautions ....................................................................................................................... 7 3.DEFINITIONS FOR HATE CRIME DATA COLLECTION .............................................................. 9 3.1 General Program Terms ................................................................................................ 9 3.2 Disability Bias and Associated Terms ............................................................................. 9 3.3 Gender Bias and Associated Terms .............................................................................. 10 3.4 Gender Identity Bias and Associated Terms ................................................................. 10 3.5 Race/Ethnicity/Ancestry Bias and Associated Terms .................................................... 11 3.6 Religious Bias and Associated Terms............................................................................ 13 3.7 Sexual-Orientation Bias and Associated Terms ............................................................ 15 4.SCENARIOS OF BIAS MOTIVATION .................................................................................... 17 5.SUBMITTING HATE CRIME DATA TO THE FBI UCR PROGRAM ............................................. 24 Version 2.0, 2/27/2015 iii 5.1 Agencies that Submit Hate Crime Data via the NIBRS ................................................... 24 5.1.1 NIBRS Offenses for Which Data Element 8A, Bias Motivation, Is Applicable ....................................... 24 5.1.2 NIBRS Data Element 8A, Bias Motivation ............................................................................................. 26 5.2 Agencies that Submit Hate Crime Data via the SRS ...................................................... 27 5.2.1 Methods for SRS Agencies to Submit Hate Crime Data ........................................................................ 27 5.2.2 Offenses for Which Hate Crime Reporting Is Applicable for SRS Agencies .......................................... 27 5.2.3 Additional Instructions for SRS Agencies .............................................................................................. 28 6.LEARNING MODULES FOR RECOGNIZING AND REPORTING HATE CRIMES .......................... 30 6.1 Use of the Enclosed Learning Modules ........................................................................ 30 6.1.1 Overview of Learning Module One ...................................................................................................... 30 6.1.2 Overview of Learning Module Two ...................................................................................................... 30 6.2 LEARNING MODULE ONE: Hate Crime Reporting Model: The Two-Tier Decision Making Process ..................................................................................................................... 31 6.2.1 Module Description .............................................................................................................................. 31 6.2.2 Course Objectives ................................................................................................................................. 31 6.2.3 Definitions for Hate Crime Data Collection .......................................................................................... 31 6.2.4 Procedures and Criteria ........................................................................................................................ 33 6.2.4.1 Two-Tier Decision-Making Process....................................................................................................... 33 6.2.4.2 Responding Officer’s Responsibilities................................................................................................... 33 6.2.4.3 Second Level Judgment Officer’s/Unit’s Responsibilities ..................................................................... 35 6.3 LEARNING MODULE TWO: Case Studies of Potential Bias-Related Crimes.................... 38 6.3.1 Module Description .............................................................................................................................. 38 6.3.2 Course Objectives ................................................................................................................................. 38 6.3.3 Rules for the Exercise Session .............................................................................................................. 38 6.3.4 Case Exercises ....................................................................................................................................... 38 APPENDIX A LEGISLATION ................................................................................................. 44 APPENDIX B UCR OFFENSE DEFINITIONS ........................................................................... 46 B.1 NIBRS Offenses and Definitions ................................................................................... 46 B.2 SRS Offenses and Definitions ....................................................................................... 51 B.3 Mutually Exclusive/Lesser Included Offenses .................................................................... 52 APPENDIX C UCR HATE CRIME STATISTICS DATA ............................................................... 54 APPENDIX D THE OFFICE OF MANAGEMENT AND BUDGET’S (OMB) RACE/ETHNICITY STANDARDS ..................................................................................................................... 55 Version