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FROM: Travis Herbek

SUBJECT: The IMPACT Model – 1993 Branch Davidian Standoff

The law enforcement negotiations that took place in 1993 between multiple federal agencies

and the Branch Davidians in Waco, Texas is perhaps one of the most high-profile events of its

nature. The Branch Davidians are a religious sect that was founded in 1955. The followers of the

sect settled in the Waco, Texas area in a compound they called the Mount Carmel Center. In

1981, Vernon Howell, who would later be known as David Koresh, joined the sect to study

biblical prophecy. Eventually, Koresh would rise in prominence within the group and become

their spiritual leader. In the years following, Koresh’s followers would draw the attention of the

Bureau of Alcohol, Tobacco, and Firearms (ATF), who began to investigate allegations of sexual

abuse and illegal weapons at the Mount Carmel Center compound. This investigation would

culminate on February 28, 1993, when ATF agents would attempt to serve a search warrant for

the compound and an arrest warrant for Koresh. While attempting to serve these warrants, ATF

agents came under gunfire from the Branch Davidians, resulting in the death of 4 agents. A

stand-off ensued and the Federal Bureau of Investigation (FBI) was requested to lead the

negotiations. Over the following 51 days, 25 FBI negotiators spoke to approximately 54

individuals including nearly 60 hours of conversation with Koresh (DOJ 1993). The FBI was

able to peacefully have 21 children and 14 adults exit the compound prior to the tragic end to the

event. On April 19, 1993, authorities tried to seize the compound and a fire ensued killing 75 as

of the FBI’s latest count (DOJ 1993). The documentation of the FBI and accompanying agencies

tactics during the negotiations serve as rich material in studying their effectiveness in different

conflict management models, such as Brian Fitch’s IMPACT model.

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Identifying and mastering emotions early in the process of conflict management can be key

to maintaining logical and rational thinking for all those involved. It is believed that to the extent

we decrease a person’s emotional arousal, we should observe an increase in their ability to listen

to reason (Fitch 13). Two of the most effective tools to accomplish this goal are ‘asking

questions’ and ‘reframing’ (Fitch 13). In review of the U.S. Department of Justice (DOJ)’s

evaluation report of the Branch Davidian Stand-off, attempts to ‘ask questions’ by the FBI

negotiators appears well documented. It is noted that a negotiator asked Koresh if he was going

to commit suicide and “are you going to let any of your other people kill themselves or die in

there?” (DOJ 1993). However, negotiators did not have similar success in attempts to ‘reframe’

the conversation. The FBI’s shows of force, specifically the use of armored vehicles to intimidate

and destroy property surrounding the compound, exemplifies that failure. The Branch Davidians

believed in Koresh’s prophecy which included an apocalyptic scenario in which the armed forces

of the United Nations, possibly led by the United States, waged war against the following.

Certainly, to some extent, the shows of force by the FBI reinforced this belief rather than

‘reframed’ the conversation to one of more rational thought.

Similar struggles can be seen in the FBI’s attempts to ‘master the story’ as described by the

second step of the IMPACT models successful conflict management strategy. Though they

initially tried to work within Koresh’s religious beliefs, the FBI soon expressed frustration. As

the DOJ observed in their review, “the FBI was unable to influence Koresh’s unique

interpretation of scripture” and he “was completely beyond the influence of religious arguments”

(DOJ 1993).

The negotiators were also thwarted in their efforts to ‘promote positive behavior’, the third

step of the IMPACT model. As Fitch wrote, “when people feel threatened or controlled, they
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often act in negative, aggressive, and, in some cases, violent ways” (Fitch 15). On March 12,

seven Davidians had exited the compound. However, despite this success, negotiations were told

that Davidian vehicles would be cleared from the compound. Negotiators opposed this idea,

noting “the FBI would be answering a positive move…by a negative action” (DOJ 1993).

Similar tactics, such as the harassment via playing annoying music or the sounds of dying

rabbits, did little to ‘promote positive behavior’ and form an environment of safety.

The effects of these actions continue to echo throughout the rest of the IMPACT model.

According to Fitch, ‘achieving a rapport’ is a critical to successful communication and represents

the fourth step in his IMPACT process. He observed that “people see nonverbal behaviors as

accurate indicators of our true attitudes” (Fitch 17). Certainly, the examples of audible

harassment and visual shows of force presented strong nonverbal behaviors that were contrary to

the negotiator’s verbal efforts.

Perhaps many of these difficulties could relate to the herculean tasks that the final two steps

of the IMPACT model required of the responding authorities. Fitch describes step five as

‘control your response’ or the attempt to limit your emotional involvement. This was certainly

difficult as the negotiations took place after ATF agents witnessed their coworkers gunned down

in the original warrant service. It must have been equally difficult to ‘take perspective’, the final

IMPACT step, with a religious zealot such as Koresh, who’s perspective may be so beyond what

an outsider to his fanaticism can comprehend.

The negotiations during the Waco siege were of large scale, however, there are lessons to be

learned from interpersonal models of conflict management. The IMPACT model is applicable in

this case, as Koresh seemingly had an absolute power of influence over his followers and

successful negotiation with him alone could have resolved a conflict involving many.
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References:

Fitch, Brian. (2016). Law Enforcement Interpersonal Communication and Conflict Management

United States Department of Justice. (1993, October 8). Evaluation of the Handling of the

Branch Davidian Stand-Off in Waco, Texas February 28 to April 19, 1993

https://www.justice.gov/archives/publications/waco/evaluation-handling-branch-davidian-stand-

waco-texas-february-28-april-19-1993#B1