FAQs
Each department must fully examine its state, local, and tribal laws to determine when it is lawful to record events. Most communities, however, fall into one of two groups.
The first group is composed of those communities that require one-party consent. In these communities it is lawful to record communication when consent is obtained from one person (e.g., officer, suspect, or victim). Within these laws, there might already be exceptions that would cover body-worn cameras (BWC). Nonetheless, in these communities, it is up to law enforcement to determine whether they inform the individual of the recording. The Police Executive Research Forum (PERF) recommends that officers inform members of the public that they are being recorded "unless doing so would be unsafe, impractical, or impossible," (PERF, 2014: 40). PERF emphasizes that this does not mean that they are required to have consent to record, only that they inform the person that they are recording. The rationale for this is straightforward. If BWCs do produce benefits in terms of change in behavior (civilizing effect), those benefits can only be realized if the community member is aware of the recording.
The second group are those communities that require two-party consent. This means that it is not legal to record the interaction unless both parties consent to it being recorded. As stated above, there might also be exceptions within these laws that may cover BWC recordings. Two-party consent laws can present special problems to law enforcement agencies that are interested in implementing a BWC program because the law enforcement officers have to announce that they would like to record the interaction and obtain approval from the member of the public. As a consequence, some states such as Pennsylvania have successfully modified existing statutes to allow the law enforcement to use BWCs without two-part consent (Mateescu, Rosenblat and Boyd, 2015).
For more information, see:
- Data and Society, Police Body-Worn Cameras (Mateescu, Rosenblat and Boyd, 2015)
- Police Executive Research Forum (PERF) for the Office of Community Oriented Policing Services, Implementing a Body-Worn Camera Program: Recommendations and Lessons Learned
There are significant concerns regarding the recording of interviews with crime victims and other vulnerable populations (e.g., children and the mentally ill). Victims of crime have experienced a traumatic event and law enforcement officers should be sensitive to the possibility that recording their interaction with the victim may exacerbate that trauma. The Police Executive Research Forum (PERF) report (PERF, 2014) recommends that officers always obtain consent to record interviews with crime victims and that consent should be recorded by the body-worn camera (BWC) or obtained in writing. Officers should also be aware of the laws governing the recording of interviews with juveniles, which may vary from laws governing adults. Officers may require additional training regarding the recording of interviews with vulnerable populations.
Participants in the February 26-27, 2015 Bureau of Justice Assistance BWC Expert Panel discussed the understandable fears victims express about the public release of their recorded statements. Damon Mosler, Deputy District Attorney of San Diego (CA) County, suggested those concerns are broader than one may initially consider. "Most policies record all law enforcement activities, but you will capture confidential, biographical, and financial data of victims and witnesses. What are victim impacts for juveniles being recorded? What about informants caught on tape? Ancillary bystanders–when you have multiple officers responding, you have different tapes. Some may shut off, some may not." Panel participants also discussed the fear victims may have about how the video could be used against them.
Further illustrating the complexity of this issue, Maggie Goodrich from the Los Angeles (CA) Police Department shared that during discussions with victims' rights advocates, the LAPD found that "some want recordings–such as when a victim is being interviewed by an expert in a rape treatment center, yet some are concerned that victims' memories right after trauma is initially fuzzy and may become clearer over time, and prosecutors don't necessarily want two different statements."
For more information, see:
- Police Executive Research Forum (PERF) for the Office of Community Oriented Policing Services, Implementing a Body-Worn Camera Program: Recommendations and Lessons Learned
An important consideration is to have prosecutor’s office at the table when developing a policy to have consistency across agencies who will be bringing their cases to that prosecutor’s office. The evidence gathered from body-worn cameras (BWCs) should be treated similarly to all other forms of evidence within a jurisdiction and in accordance with the Constitution and state, federal, local, and tribal laws. For this reason, many county prosecutors have suggested that all law enforcement agencies in a particular county, serving the same jury pool, work collaboratively to ensure BWC policies are consistent with regard to these critical evidentiary issues. This would be the same case for city prosecutors in cities where there are multiple law enforcement agencies providing service in addition to the primary law enforcement agency (e.g., school, transit, and university law enforcement).
A second important consideration is to have the defense bar be a part of the decision making process regarding policy creation. Including the defense bar helps law enforcement agencies understand how the defense and their clients view and use the video. Communities will decide at what point in the implementation process that the defense bar should receive an orientation regarding the program. Ensuring that the representatives of the accused understand the program will eliminate potential obstacles later on in actual criminal cases.
A final consideration is whether civilian members of the community should be a part of the policy decision making process. Carlton Mayer from the NAACP summed it up best in a statement shared at the February 26-27, 2015 Bureau of Justice Assistance BWC Expert Panel: “there needs to be a transparent relationship with law enforcement. In order for that to happen there needs to be a give and take on both ends. The community needs to understand the role of law enforcement and their limitations, whereas law enforcement must understand what is ideal and what the community is experiencing.”
Sergeants and supervisors also require training. Supervisors should have the same training as line officers if they are required to wear cameras (policy, operation, video downloading, etc.). But in a supervisory capacity, supervisors use body-worn camera (BWC) video differently from line officers. As a result, they need specialized training as well. Supervisors must clearly understand departmental policy and how it governs their responsibilities and authority to review recorded data. Topics to be addressed in training include:
- Are supervisors permitted to review officer video randomly? For what purpose?
- If supervisors review video, are they required to notify the officer?
- What are the processes a supervisor should take if he or she observes problematic behavior by an officer in a video?
Supervisors should recognize that line officers’ acceptance and incorporation of the technology into their daily routine may vary, and that the speed of adoption can vary based on their comfort with technology.
Some examples of key issues in this area were shared at the February 26-27, 2015, Bureau of Justice Assistance BWC Expert Panel. Chief Sean Whent of the Oakland (CA) Police Department said their supervisors "are required to review each subordinate’s video but the policy is being revised to be more specific so officers are randomly reviewed." Lieutenant Daniel Zehnder of the Las Vegas (NV) Metropolitan Police Department explained that they are "requiring an annual recertification for supervisors which is separate from the training for line officers." Maggie Goodrich from the Los Angeles (CA) Police Department highlighted that supervisors may have specific responsibilities regarding BWCs following a critical incident, such as taking possession of cameras from the involved officers.
There is strong evidence that suggests line officers and their bargaining units should be engaged up front as a department plans its body-worn camera (BWC) program. Such engagement helps to garner support for the program and will allow line officers and bargaining unit representatives to provide input into the planning and deployment process, most notably the creation of the administrative policy.
In addition to the one-on-one contact with bargaining unit representation, many law enforcement executives have noted that they have spent a significant amount of time communicating with officers about the technology at roll call briefings and department meetings prior to launch. Other departments have created "implementation teams" with representatives from various units throughout the department (PERF, 2014). These types of teams meet regularly during the planning and implementation process, air concerns and troubleshoot challenges, and develop policy and training.
Participants in the February 26-27, 2015 Bureau of Justice Assistance BWC Expert Panel all agreed that early and ongoing collaboration between agencies and labor organizations was critical to successful BWC program implementation. Chief Sean Whent of the Oakland (CA) Police Department said that their success hinged on the "union being involved in creation of policy and they were most concerned about (the) department saying officers are lying about what is on video." Lieutenant Clarence Trapp from the Pittsburgh (PA) Bureau of Police urged that implementers make collaboration a priority, noting that "when deploying the cameras, the Pittsburgh (PA) Bureau of Police worked with the prosecuting attorney, a professor from the American Civil Liberties Union, and the union president to make this work." Chief Jeff Halstead (retired) from the Fort Worth (TX) Police Department said, "let the union board draft the first policy document and let them have a seat at the policy table and training."
The implementation of a body-worn camera (BWC) program affects nearly every unit in a law enforcement agency. At a minimum, the affected officers and units include: patrol officers, patrol supervisors (sergeants through commanders), training instructors, legal staff, detectives/investigators, internal affairs/professional standards, evidence management and records, technology, and research and planning. Additionally, in some departments, tactical units also wear BWCs. Representatives from all of these units should participate, in some way, in the planning and implementation process.
Departments vary in how they have implemented body-worn camera (BWC) programs. However, there are two common themes.
First, the vast majority of departments have implemented their BWC programs with officers assigned to patrol. The rationale for deploying the technology with front-line patrol officers is that officers on patrol have the most contact with the public. Some departments have also expanded their use of BWCs beyond patrol into specialized units such as K-9, SWAT, specialized driving under the influence teams, and investigations.
Second, many departments have adopted an incremental approach to deployment by restricting use to a small number of officers for an initial pilot period. Departments have found that this type of approach helps to overcome potential officer anxiety and resistance and enables a department to make mid-term revisions as it learns how this technology affects the community as a whole. Such a strategy also allows other units in the department the time to adapt to the new technology. In many cases, the initial group of officers assigned to wear cameras are volunteers who often become "internal champions" for the technology.
Lindsay Miller from the Police Executive Research Forum stated, "The decision to implement a BWC program should not be entered lightly–once implemented it is hard to scale back from that course. Agencies need to thoughtfully examine the idea of a BWC program and have written policies in place (something not all agencies do)."
Much of what the officer needs to know about body-worn cameras (BWC) can be administered through a pre-shift/roll call training session. The training session, at a minimum, should:
- Point out the systems' hardware components (docking station, lens, on/off button, how to wear, etc.).
- Demonstrate how to operate the BWC system.
- Walk officers through a pre-shift inspection of the equipment.
- Review departmental policies related to the use of BWCs (including activation and deactivation protocols).
- Discuss how to effectively use the BWC to assist with the incident report writing and evidence collection.
- Explain how to download the video and what happens to it after download.
When asked this question during the February 26-27, 2015 Bureau of Justice Assistance BWC Expert Panel, participants offered these thoughts about critical elements of successful training:
- "Training programs for officers should be dependent on what you want the outcome to be," said Patricia Wolfhope, Senior Program Manager from the Science and Technology Directorate in the U.S. Department of Homeland Security.
- "Training was worked into roll calls for every section and hit every unit," said Sgt. Dan Gomez, Los Angeles (CA) Police Department.
- "We developed training based on what the end user needed to know about the device and how to use it," Deputy Chief Lauretta Hill, Miami Beach (FL) Police Department.
There is currently no evidence from the United States documenting any sort of health and safety risks associated with body-worn cameras. The United Kingdom Home Office guide provides a comprehensive list of potential hazards to officers who wear head-mounted cameras, rates the risk level for each hazard, and discusses strategies to mitigate risk. Many of the hazards are deemed to be low-risk, such as being targeted for assault because of the camera, neck injury from the weight of the camera, and electrical shock. However, several hazards are rated as medium-risk, such as strangulation with the lead (or wire) by an offender; head injury through impact of the camera by an assailant; and soreness, discomfort, and headache from the headband. Most of the cited health concerns are mitigated by wearing the camera on other parts of the uniform (e.g., the torso, not the head). The lack of evidence regarding the health and safety concerns does not mean there are no risks. Departments should explore potential risks as they adopt the technology.
For more information, see:
- United Kingdom Home Office, Guidance for the Police Use of Body-Worn Video Devices
At a minimum, a law enforcement agency should collaborate with the prosecutor's office (city, county, state, federal, and/or tribal), the public defender and defense bar, the courts, and relevant leaders in local/tribal government (mayor, city council, city attorney, etc.).
The law enforcement agency should also engage civil rights/advocacy groups, community leaders, and residents. A number of agencies have also engaged local media in the process to educate the public, advertise the decision to adopt the technology (i.e., to demonstrate transparency), and provide a mechanism to gather feedback.
In March 2015, there were nearly 30 states considering legislation governing officer body-worn cameras (BWC), many of which mandate cameras for all law enforcement officials in the entire state. Law enforcement leaders should also engage state representatives to ensure that legislatures fully understand the issues surrounding this technology, and that they engage in thoughtful deliberations regarding BWCs. By engaging external stakeholders, the law enforcement agency can ensure that expectations about the impact of the technology are reasonable and their outcomes obtainable.
Results from the Police Executive Research Forum (PERF) surveys of law enforcement executives demonstrate that a number of agencies have engaged with their residents in a positive way regarding the deployment of body-worn cameras (BWC). A number of departments have used adoption of BWCs as an opportunity to demonstrate transparency to the community. Numerous experts strongly recommend engaging in dialogue with members of the public about BWCs before the technology is deployed on the street. Chief Farrar of the Rialto (CA) Police Department stated, "You have to engage the public before the cameras hit the street. You have to tell people what the cameras are going to be used for, how everyone can benefit from them." (PERF, 2014: 21) Other agencies, such as the Los Angeles (CA) Police Department, have solicited community input regarding the development of their administrative policy, and many agencies have used social media to engage residents on the technology.
The February 25-26, 2015 Bureau of Justice Assistance BWC Expert Panel participants emphasized that BWC programs are only one piece of the puzzle, offering the following thoughts:
- "Just because I put on a camera doesn't mean that it's building a relationship or more trust. Police departments needs to use the cameras as part of a larger engagement strategy." Joe Perez, President, Hispanic American Police Command Officers Association – National Capitol Region
- "Trust needs to be established. How can we establish more trust amongst those we serve? There should be more dialogue on this topic rather than on logistics." Dr. Michael D. White, Arizona State University
- "We are posting our video to a YouTube page with redacted videos as a pilot to get transparency and accountability up and requests for videos down." Michael Wagers, Chief Operating Officer, Seattle (WA) Police Department
- "Over the last two years there has been a change; more transparency and legitimacy in policing, and the government invested more money (increased to £6 million pounds) into the BWC program." Inspector Steve Goodier, Hampshire Constabulary, United Kingdom
A number of departments have found that engaging the community prior to deployment of body-worn cameras (BWC) has helped to generate community support. Agencies have used a number of methods to engage the public, including press releases (e.g., television, print media), the use of social media (e.g., Facebook, Twitter), well-publicized demonstrations of the technology, and in-person communications with community leaders. Experiences from law enforcement executives interviewed by the Police Executive Research Forum highlight the importance of community engagement.
Community engagement was a recurrent them at the February 26-27, 2015 Bureau of Justice Assistance BWC Expert Panel, including the following comments:
- "Our chief hosted multiple community outreach groups to give folks an opportunity to weigh in on our body-worn camera program. In addition, we conducted an online survey of the community and used UCLA (University of California-Los Angeles) as an independent body to evaluate the survey." Sgt. Dan Gomez, Los Angeles (CA) Police Department
- "We brought in the community–even those community members that didn’t like us–to watch our training. And, they loved it." Chief Jeff Halstead (retired), Fort Worth (TX) Police Department
- "Train with the community through established community stakeholders. Temper what the camera can do with the reality of what it captures." Lieutenant Daniel Zehnder, Las Vegas (NV) Metropolitan Police Department
There is no evidence suggesting that body-worn cameras (BWC) have a negative impact on law enforcement–community relationships. However, a number of executives expressed concerns during their interviews with the Police Executive Research Forum (PERF). For example, Bob Cherry, the former President of the Baltimore City (MD) Fraternal Order of Police said, "Trust builds through relationships, and body-worn cameras start from a position of mistrust."
Officers in several other agencies noted that BWCs can hurt intelligence-gathering opportunities, as members of the public will be less likely to provide information if they know they will be recorded. Some law enforcement executives disagreed with this claim, pointing out that BWCs in and of themselves are not responsible for an agency’s relationship with the community.
There are limitations to body-worn cameras (BWC), and agencies should educate the public, advocacy groups, and other stakeholders regarding those limitations. BWCs may not capture every aspect of an encounter based on camera angle, focus, or lighting. For example, the camera view may be obscured when an officer moves his or her body. Footage may also not capture the entirety of an encounter. There may be different interpretations of what transpires on a video among those who view it.
There is also a relevant body of research on memory science: how officers perceive events during a high-stress critical incidents, and how they are able to accurately recall what transpired after the fact. Dr. Bill Lewinski, Executive Director of the Force Science Institute, testified before the President's Task Force on 21st Century Policing regarding memory science and how such issues provide an important context for understanding the impact of BWCs. Dr. Lewinski identified 10 important limitations with BWCs that should shape our review and understanding of law enforcement behavior during critical encounters:
- A camera does not follow officers' eyes or see as they see.
- Some important danger cues cannot be recorded.
- Camera speed differs from the speed of life.
- A camera may not see as well as a human does in low light.
- An officer's body may block the view.
- A camera only records in 2-D.
- The absence of sophisticated time-stamping may prove critical.
- One camera may not be enough.
- A camera encourages second-guessing.
- A camera can never replace a thorough investigation.
Participants at the February 2015 Bureau of Justice Assistance BWC Expert Panel also stressed the importance of communicating the limits of the technology. Michael Kurtenbach of the Phoenix (AZ) Police Department said, "Sit down with the community and have discussions about limitations for a constructive dialogue." Inspector Steve Goodier from the Hampshire Constabulary in the United Kingdom added, "There is a gap in the limitations of the human and camera, and it is important to make that distinction."
The deployment of a body-worn camera (BWC) program by itself cannot alter law enforcement–community relations, especially if those relationships have been characterized by long-standing tension and anger. Camera deployment cannot replace community policing. Expectations about the impact of BWCs must be reasonable, and agencies should be proactive in their discussions about the technology. The key to increasing law enforcement legitimacy, especially in minority communities, rests with ensuring procedural justice and community policing. Departments should think about BWCs in terms of achieving these two objectives.
In his testimony before the President's Task Force on 21st Century Policing, Dr. Michael D. White of Arizona State University stated the police leaders should, "Emphasize that expectations about the impact of BWCs must be reasonable. In cities like Ferguson (MO), the relationship between police and the community is defined by long-standing anger and distrust. BWCs, on their own, cannot alter that relationship. But BWCs can represent a starting point for police to demonstrate transparency and a willingness to engage with community members. This first step is especially important in cities like Ferguson where police officers are seen as enemies and threats, rather than public servants and problem solvers."