Jacksonville Civil Unrest After-Action Report

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2020 Jacksonville Civil Unrest After Action Report
 Purpose Statement
The purpose of this after-action report is to summarize the Jacksonville Sheriff’s
Office response to civil unrest in downtown Jacksonville during the weekend of May 30 th
-31st, 2020. A focal point throughout the summary will be to identify commendable
actions as well as opportunities for improvement. This after-action report is not
intended to be an investigative summary nor is the report intended to encompass all
facts surrounding these events.

At the time of the events, the Mobile Field Force (MFF) consisted of three
lieutenants, eight sergeants, and sixty-five officers. In addition, resources from both the
Department of Patrol & Enforcement along with the Department of Investigations and
Homeland Security supplemented the Mobile Field Force Unit to accomplish common
incident objectives identified in the Incident Action Plan.

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2020 Jacksonville Civil Unrest After Action Report
Event Summary
On Saturday, May 30th, 2020 and Sunday May 31st, 2020 there were protests
scheduled that occurred in downtown Jacksonville. The initial intelligence indicated a
caravan protest, which the Incident Commander used to guide staffing. There was no
initial intelligence indicating the possibility of civil unrest and/or a riot. A tactical action
plan was created by the Jacksonville Sheriff’s Office (JSO) to provide security for
protestors while protecting constitutional rights and enforcing applicable criminal laws.
On both dates, the protest eventually devolved from peaceful to civil unrest as
individuals began to violate criminal laws by blocking roadways, throwing items at police
officers and damaging property. As a result, the JSO Mobile Field Force Unit (MFF) was
activated to provide security for peaceful protestors, enforce applicable laws, and
restore peace.

At the conclusion of the weekend’s events, 83 persons were arrested (69 Duval
County residents), 7 department vehicles were damaged along with several privately
owned businesses and 2 government buildings. Additionally, a total of 7 officers
reported minor injuries and 1 officer required emergency medical treatment after
receiving a laceration on his neck.

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Mobile Field Force Response:
On Saturday May 30th, 2020 the Jacksonville Sheriff's Office Mobile Field Force
(MFF) was staged in the downtown area ready to respond to any unlawful assembly
that might arise out of the scheduled protests at the Police Memorial Building (PMB).
The protest was scheduled from 1:30 PM until 3:00 PM. Beginning one hour before the
scheduled start time; the following announcement was made in approximate ten minute
increments using the Long Range Acoustical Device (LRAD).

“The Jacksonville Sheriff’s Office (JSO) respects and acknowledges the rights of
persons to express their views in a lawful manner. JSO’s role is to protect the rights of
the public and peaceful protestors by enforcing the law and maintaining order. During a
lawful protest, JSO will, however, take appropriate action in response to anyone who
breaches the peace, engages in disorderly conduct, and incites a riot by words or
actions, or when other criminal violations are observed or reported. Please be reminded
that anyone who engages in unlawful behavior that obstructs or interferes with a lawful
and peaceful protest may also be subject to arrest or citation. If you have any questions
regarding what is or is not prohibited activity, please ask to speak to an on-scene police
supervisor. Thank you for your assistance and cooperation in maintaining order and
civility today.”

The scheduled protest concluded at approximately 5:30 PM as a large gathering

of protesters began marching eastbound in the 300 block of East Bay Street. As they
marched, the protestors began to block the roadway by sitting in the middle of the
intersection of East Bay Street and Market Street and refusing commands to disperse;
thereby shutting down all avenues of vehicular traffic. The crowd size was estimated at
500 and its overall demeanor was hostile. Multiple individuals were observed damaging
police cars by breaking windows and jumping onto the hoods. Other protestors were
seen breaking windows of nearby store fronts in violation of Florida law.

Radio transmissions from an on-scene JSO supervisor indicated that an officer

was surrounded by multiple protesters and received a laceration on the neck. Moments
later, an "Officer Down at East Bay Street and Newnan Street" was broadcast on the
radio. Multiple patrol units as well as MFF units and members of SWAT responded to
that area to assist with the officer rescue. It was confirmed that the officer received a

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laceration on the neck which required emergency medical assistance. An investigation
was conducted by the Jacksonville Sheriff’s Office Integrity/Special Investigations Unit.
Detectives utilized Body Worn Camera recordings and were able to identify a suspect
from the incident as Martin Silver-Albor. The suspect was subsequently arrested and
charged with aggravated battery on a law enforcement officer, criminal mischief and
resisting an officer without violence.

Once the officer was located and extracted to safety, increased police presence
at the 300 block of East Bay Street was ordered. The crowd re-grouped, increased in
size and quickly regained their agitated momentum by blocking and sitting in the middle
of the intersection of East Bay Street and Newnan Street, refusing to leave. Members
from the crowd also began to throw rocks, bricks, and full water bottles at police while
concealing themselves within the crowd. Those violent acts toward the police
constituted the crimes of "Unlawful Assembly" (FSS 870.02) and "Battery on a Law
Enforcement Officer" (784.07).

Due to the actions of the protestors, Commanders declared this event an

unlawful assembly. Per departmental policy, a dispersal order was broadcast over a
public address (PA) system and advised the following:

“The Jacksonville Sheriff’s Office declares this to be an unlawful assembly and, in the
name of the State of Florida, City of Jacksonville, we command all persons assembled
at Bay Street and Newnan Street to disperse. If you fail to do so, you will be arrested or
subject to other police action. Other police action may include the use of less-lethal
munitions, which could cause significant risk of injury to those who remain. Chapter
870.04 of Florida Statutes prohibits remaining present at an unlawful assembly. If you
remain in this area for any reason, you will be subject to arrest and prosecution for
unlawful assembly. The following routes of dispersal are available: North on Newman
Street or West on East Bay Street. You have 5 minutes to disperse.”

Commanders explained to the crowd avenues of egress (north on Newnan Street

and west on East Bay Street) and a dispersal time of 5 minutes. The crowd was warned
that a failure to disperse would lead to increased action to include, but not limited to:
physical arrest and chemical munition deployment. The entire unlawful assembly
announcement and dispersal order was repeated over the PA system, including
avenues of exit and a timeframe to disperse. After the second announcement, roughly
200 protesters remained in the area, blocking East Bay Street and Newnan Street by
sitting in the middle of the intersection and refusing to leave.

In order to disperse the crowd and restore peace to the area of the unlawful
assembly, MFF Commanders directed the deployment of chemical munitions. During
the deployment of the chemical munitions, protestors kicked and tossed back several
cans of the chemical munitions towards the police. Approximately a dozen protesters

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ran into the grass field at 300 East Bay Street while continuing to throw bottles and
other objects at police. A line of MFF Officers was formed to deploy additional chemical
munitions into the violent crowd. Some of the protesters left the immediate area but a
majority stayed, refused to disperse, and reorganized as a group in the intersection of
East Bay Street and Newnan Street.

As Officer W. Fisher #69638 was affecting an arrest at East Bay Street and
Newnan Street, dozens of protesters converged towards his location in an attempt to
hinder the arrest. During this interaction MFF officers were struck with gallon bottles of
milk as they were assisting with the arrest. Commanders directed the deployment of
less-lethal impact munitions which forced many of the violent subjects to scatter. MFF
Commanders then ordered the deployment of Orthochlorobenzalmal (CS) gas towards
the violent crowd, which at the time was congregating on East Bay Street, west of
Newnan Street. The deployment of chemical munitions was effective in dispersing most
of the violent protestors.

As the MFF maneuvered the violent crowd north-west on East Bay Street., the
protesters re-grouped and formed another blockade by physically occupying the
intersection of Newnan Street and Forsyth Street, again refusing to leave.
Commanders formed up MFF officers and established a line formation on Newnan
Street facing north at Forsyth Street. These protesters were part of the same group that
was dispersed earlier. While officers were securing Newnan Street, they were
continually being pelted with bottles and what appeared to be rocks and bricks.
Commanders gave the order to deploy CS gas, once again, towards the violent crowd.
The deployment of chemical munitions was effective, and the crowd scattered in three
separate directions as officer’s regained control of the intersection and streets.

There was no further need to deploy chemical munitions at this point because the
protesters dispersed. No injuries were reported by the protesters or police officers
related to the deployment of chemical munitions.

On Sunday May 31st, 2020 at 12:30 PM, approximately 100 people gathered on
the steps of the Duval County Courthouse, 501 West Adams Street, to protest police
brutality. The Zone 1 Bike Units were on site for intelligence gathering to and provide a
visible presence in the area.

The group began marching west on Adams Street where they remained mostly
on the sidewalk and did not obstruct vehicular traffic. The protesters then turned north
onto North Broad Street where they ventured into the travel lanes and began to obstruct
vehicular traffic. This continued as they turned east onto West Church Street and
walked in the roadway against on-coming traffic causing further obstructions. As the
group of protesters tuned north onto North Clay Street and then east on Union Street

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they continued to interfere with vehicular traffic. Members of Jacksonville Sheriffs Office
Traffic Unit then shut down Union Street to vehicle traffic to protect the protesters. The
MFF began to assemble in the area due to the increasing concern the protesters
presented by disobeying traffic laws and obstructing vehicular traffic. The protesters
continued on their route and turned south on Laura Street, east on West Street Bay
Street, and then back west to head to the courthouse on West Adams Street.
Throughout the march, the protesters disobeyed traffic laws by marching in the street
and obstructing vehicular traffic from travel. Once the protesters arrived on courthouse
property the group exited the roadway and conducted a peaceful demonstration.

Sections of the roadway around the court house property were closed off to
vehicular traffic to protect protesters. Officers conducted a traffic stop on a motorcyclist
that drove through the barricades and endangered the protesters. During that traffic
stop a group of protesters converged on the scene and began to interfere with the stop
by yelling and being verbally abusive towards the officers conducting the stop.

The protesters left courthouse property and began to march towards the Main
Street Bridge. They impeded the flow of traffic, disobeying traffic laws and refusing to
leave the roadway, when they could have marched lawfully on the sidewalk. Once at the
bridge the protesters obstructed vehicular traffic by standing in the lanes and blocking
the roadway. Assistant Chief M. Johnson declared an Unlawful Assembly and gave the
approved Jacksonville Sheriffs Office dispersal order to the crowd instructing them to
exit the roadway and leave the bridge. The protesters refused to obey the dispersal
order prompting enforcement from the MFF. As members of the MFF attempted to
execute the arrest of the unlawful protesters, additional protesters jumped over the
retention wall to interfere with the officers executing lawful arrests. Due to the physical
resistance the crowd was displaying, an officer deployed OC spray towards the crowd,
but they remained aggressive. The protesters grew violent and began to riot by throwing
bottles containing an unknown liquid at the officers.

The group left the bridge and re-grouped at the base of the bridge where a
second dispersal announcement was made. Rioters were scattered throughout the
protest group among the otherwise peaceful protesters. Most protesters left the area
travelling west on West Bay Street back towards the Duval County Court House. The
group re-formed on courthouse property. Assistant Chief M. Johnson gave a third
dispersal announcement and a majority of the group left. A small contingency of about
two dozen protesters remained on property and refused to comply with the dispersal
announcement. Members of the JSO and Florida Highway Patrol (FHP) Mobile Field
Force advanced and arrested the remaining protesters. Jail vans were called to scene
to assist in the processing of the arrestees.

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Radio transmissions received from the Jacksonville Sheriffs Office Communication
Center advised that a group of protesters were walking eastbound on Adams Street
towards Main Street. Supervisors witnessed the group in the intersection of East Bay
Street and Market Street.

The group was interfering with vehicular traffic, and witnessed the rioters
breaking the law by throwing objects at passing motorists.

Assistant Chief M. Johnson declared an Unlawful Assembly and gave the group
orders to disperse and leave the area. The group refused until members of the MFF
moved in. At that point most protesters left the area, but a remaining few were taken
into custody. One of the persons arrested led to the discovery of a home-made
incendiary device. The JSO’s Hazardous Device Unit was called in and managed that
portion of incident.

Supervisors were then notified of a group of protesters at Klutho Park, 204 West
Third Street. Upon arrival the protesters were found at the intersection of West Third
Street and Boulevard Street. The group remained peaceful and did not violate any laws.
It was announced that the 8:00 PM curfew established by Mayor Curry was about to be
enforced and they must leave area. All protesters left without any further police
intervention.

Members of the JSO MFF returned to the Police Memorial Building.

After Action Feedback

Feedback was solicited and obtained during debriefing meetings with members of the:
Incident Management Teams, Agency Administrators and initial responders.

Strengths
Planning Specific:
 Check-in of personnel improved as the operation progressed.
o Planning Section transitioned from a traditional process where personnel
parked in the staging area and self-reported to a static check-in location to
a process where Status Check-in Recorders met personnel at their
vehicle, when entering staging area, to obtain necessary information.

Logistics Specific:
 Ability to meet demands of incident with internal resources.
 Timely response from the FHP Field Force Unit to provided added resources.

Operations Specific:

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  Effective Mobile Field Force response as measured by the ability to effectively
contain and or disperse an incident of civil unrest.
 Appropriate number of on-duty resources provided by unit commanders when
requested by Initial Incident Commander.
 The use of the Incident Command System planning process and subsequent
Incident Action Plan enhanced the first operational period and reduced
duplication of effort while sharing responsibilities to accomplish a common set
of objectives.

Mobile Field Force Specific:

 Tactics – Overall, the tactics were successful; however, additional resources
would have aided in dispersing the crowd sooner. MFF had not been involved in
large scale civil unrest environment prior to this. The MFF members attend and
are certified in Mobile Field Force Operations, through FEMA. The training
proved to be beneficial throughout the incident.
 Munitions effectiveness – MFF was able to deploy chemical munitions in an
effective and efficient manner in response to resistance once the protest met
thresholds as determined by the command staff. No injuries were reported that
can be attributed to the deployment of chemical munitions.
 Munitions resupply – While improvements have been suggested and requests
have been made to improve equipment and personnel capabilities, munitions
resupply to MFF personnel was effective and limited the amount of time needed
to resupply personnel for chemical munitions deployments.
 Resource integration – While there was some difficulty on May 30 th, 2020
integrating patrol units into a spontaneous response, the May 31 st planned
resource integration of FHP Field Force and Department of Investigations and
Homeland Security was more efficient and proved to be critical components to
the response.
 Discipline – Members of the MFF and members temporarily assigned to the MFF
showed tremendous discipline under extraordinary circumstances both of civil
unrest and inclement weather. The MFF held the line formations for long hours
in the extreme summer temperatures.
 Interagency coordination and medical response – Jacksonville Fire Rescue
Department was able to stage quickly and provide assistance to agency
members. Additionally, MFF were able to effectively deploy tactical medic
response into the unrest to deal with fires as well as minor medical resupply (ex.
hydration).
 Prevention of significant damage or civic disruption – throughout the event MFF
was able to respond rapidly to effectively minimize civil unrest due to agency
administrative support.

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Areas for Improvement

Universal:
 Organizing and assigning new resources from various units and agencies lacked
coordination during the initial stages of the operation.
 Deploy persons based on their background and expertise to fill command and
general staff positions.
 A lack of continuity within the staffing of Incident Commander Position created
challenges in both sharing of information and planning.

Planning Specific:
 ICS 211’s (Resource Check-in) forms were not completed in the initial stages of
the incident. This complicated resource tracking and overtime reimbursement.
 Tracking arrest documentation was difficult as many original copies were
unintentionally discarded or not utilized.
 Mass recall of resources presented challenges in making contact with agency
members. Many members were unable to be reached on the telephone or were
unavailable to respond.

Logistics Specific:
 Prepositioned barricades placed in front of the Police Memorial Building needed
to be moved to lower level.
 The absence of Police Crime Scene tape or signage, affixed to barricades,
hampered the ability to enforce area denial.
 No formalized communication or process for resource request; instead,
personnel relied on text messages, phone calls and emails to request equipment.
 Additional box truck for equipment was needed to replenish munitions,
equipment, grenadiers, and arrest teams.
 Personnel reported without required civil unrest-related equipment (helmets and
gas masks).

Operations Specific:
 As the incident progressed officers staged at locations, separated from central
staging area, caused inefficiencies in communication, accountability and mission
tasking.
 Arrest Process led to a lack of information sharing among officers and some
errors on arrest reports. Specifically, the arrest forms, referenced in the mobile
field policy, were not fully utilized.

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Finance Specific:
 A list of personnel placed on stand-by was not provided, which complicated
overtime submission verification.
 ICS 211 was completed using overtime submissions, which complicated the
approval of overtime.

Field Force Specific:

 MFF Command worked with the command staff at the Pre-Trial Detention Facility
to ensure that they were prepared to implement mass arrest procedures. Mass
arrest processes referenced in the MFF Unit Procedure were not fully utilized to
include arrest and booking report approval, arrest processing area and proper
documentation techniques
 These issues resulted in three primary deficiencies:
o Improper communication of probable cause for arrest between officers.
o Increased the difficulty to identify officers who developed probable cause
for arrest.
o MFF operated under the principle that once a dispersal order was given; it
remained in place as the crowd moved from one location to another.
 Use of scribes
o A great deal of important operational information was lost due to
insufficient use of scribes and an overreliance on radio transmissions and
body worn camera footage. Documentation of commands ranging from
instructions given at briefings (activation of Body Worn Cameras,
Response to Resistance Policy, readings, etc.) to when field commands
were given & not captured on radio transmissions (dispersal orders, etc.)
were not sufficiently documented.

 Consistency in videography
o The MFF videographer did not fulfil his assigned duties, per unit
procedures.

Future Considerations
 Conduct annual review and update of Order(s) 246 Mobile Field Force, Unit
Procedure 246 Mobile Field Force and 203 Protest Activity to reflect lessons
learned and best practices.
o Train mass- arrest procedures monthly, during periods of civil unrest, in
policy to ensure consistency and standardization.

 Schedule and plan an annual full-scale and table top exercise to prepare for
mass civil unrest incidents to include potential assisting agencies.
o Include Incident Management and the use of the Incident Command
System (ICS) as an exercise objective.

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 o To enhance continuity and effectiveness, identify a commanding officer to
be responsible for all scheduled protest activity.
 Similar to the commanding officer of the SWAT team, who is
responsible for all high-risk search warrants.

 Incorporate Staging Area Manager Procedures in the Emergency Preparedness

Unit Order or Unit Procedure and train to the identified standard.

 Conduct monthly equipment line inspections, instead of quarterly.

o Provide officers with the ability to affix gas mask to uniform (leg pouch).

 Exercise unannounced mass recall to develop a smooth and orderly response

from off-duty personnel.

 Re-organize the Mobile Field Force Unit to increase continuity, accountability,

proficiency, and training.
o Retain members of Mobile Field Force Unit for a longer duration to
strengthen the numbers of trained personnel.
o Develop a method to identify MMF members when they are on the line.
Doing so will enable the capture of their information to be noted in arrest
documentation (# on helmet or on back and front of tactical vest).

 The following adjustments have been made to the Mobile Field Force Unit:
 Field Force Personnel
o Adjustment in leadership amongst the team.
o Additional MFF membership. MFF has been increased immediately to
over 125 (from approximately 70) with plans to increase to a cap of
200.
o All recruits will receive the Center for Domestic Preparedness Field
Force Operations course while still in the Academy (beginning as soon
as FEMA Instructors become available).

 Administrative
o Rotating on-call teams with a minimum of 4 line/arrest team squads; 1
grenadier squad; 1 equipment/logistics squad.
o Rotating on call command staff with now 2 Lieutenants on call, daily.
o Developed a MFF After-Action Report via RMS to document actions at
MFF deployments to include: searches and protests/civil unrests.
o Creation of Arrest Kits to be distributed to jail transportation personnel
including:
 Digital Camera
 Arrest Summary Forms
o Request scribes from the Operations Section to MFF Command to
complete a chronological recap of events during the event.
o Utilize the LRAD to communicate dispersal order.
o Video, separate from body worn camera, the actions of the protesters.

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  Training
o Due to the increase in personnel, MFF adjusted as of September, 2020
training to facilitate the consistent exercise of tactics.
o MFF will maintain quarterly training for specialized units.
o Additional Patrol training blocks to increase base knowledge and
awareness of MFF tactics & techniques for Patrol responses.
o Regular training with the JSO Mounted Unit.
o Coordinate biannual training with Hazardous Devices Unit to conduct
incendiary devices training along with JFRD for fire suppression during
crowd control environments.
o Utilize Academy Defensive Tactics staff to train MFF members in
physical control techniques for arrest and crowd control techniques.
 The training will provide alternative methods other than the
need for striking using hands/feet/intermediate weapons.
 This will also reduce injuries to officers and citizens.

 Capabilities
o Addition of the Bike Response Team (BRT), trained in specialized bike
tactics for riot response.
o Addition of the Pepperball precision chemical munitions deployment
system to improve both direct impact and denial of access capabilities.
o Increased training in arrest process and procedures including
integration of the new MFF Arrest Summary Form.
o Currently test and evaluate green laser resistant eye wear to prevent
blindness in response to tactics being used around the country to blind
officers.
o Add one additional Extrication Team to handle multiple simultaneous
extrication events.
o Videographer assigned to video documentation of the cooperation
statements between JSO and the organizers prior to any planned
event and will document the primary protest/civil unrest site.
 Video documentation of mobile or dynamic civil unrest will lie
with the Unmanned Aerial Systems Unit (UAS) with approval of
the Incident Commander.
 In the event of a mobile or dynamic civil unrest the videographer
will be assigned to the MFF Field Commander and will
document any Unlawful Assembly/Dispersal Order given.

 There have been significant discussions with the State Attorney’s Office and the
Office of General Counsel about the statutes utilized to affect arrests during civil
unrest.

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  The JSO will continue to enforce all applicable Florida State Statutes and
Municipal Ordinances with regards to unlawful acts at otherwise lawful
assemblies to accomplish its mission and vision while upholding the
organizations’ core values, and supporting the right of citizens to peacefully
protest.

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