Missing and Abducted Children: A Law-Enforcement Guide to Case

232 Pages·2011·1.55 MB·English

Missing
and
Abducted
Children:
A Law-Enforcement
Guide to Case Investigation
and Program Management

Missing and Abducted Children:
A Law-Enforcement Guide to
Case Investigation and Program Management
Fourth Edition
2011
Edited by
Preston Findlay and Robert G. Lowery, Jr.
National Center for Missing & Exploited Children®
Charles B. Wang International Children’s Building
699 Prince Street
Alexandria, Virginia 22314-3175
1-800-THE-LOST®
(1-800-843-5678)
ORI VA007019W
Copyright © 1994, 1997, 2000, 2006, and 2011
National Center for Missing & Exploited Children. All rights reserved.
This project was supported by Grant No. 2013-MC-FX-K001 awarded by the Office of
Juvenile Justice and Delinquency Prevention, Office of Justice Programs, U.S. Department of
Justice. This document is provided for informational purposes only and does not constitute
legal advice or professional opinion on specific facts. Information provided in this document
may not remain current or accurate, so recipients should use this document only as a starting
point for their own independent research and analysis. If legal advice or other expert assistance is
required, the services of a competent professional should be sought. Points of view or opinions
in this document are those of the author and do not necessarily represent the official position
or policies of the U.S. Department of Justice. Child Victim Identification Program®, CyberTipline®,
Deliver Me Home®, National Center for Missing & Exploited Children®, NetSmartz411®,
1-800-THE-LOST®, Project ALERT®, Sex Offender Tracking Team®, and SOTT® are registered
trademarks of the National Center for Missing & Exploited Children.

Contents
Acknowledgments.....ix
Letter From Ernie Allen.....xiii
Foreword by John Walsh.....xv
An Issue Perspective by Stephen E. Steidel and Preston Findlay.....1
Quick Reference.....1
Historical Overview.....3
The Numbers.....11
Law Enforcement’s Response to Reports of Missing Children.....13
Model Policies.....14
Agency Accreditation.....14
Significant Trends, Projects, and Programs.....14
Law-Enforcement Training.....15
The AMBER AlertTM and Other Missing-Children Notification Programs.....15
Secondary Distribution of AMBER Alerts.....15
Alternate Notification Systems.....16
Child Abduction Response Team.....16
Protecting Children From Online Victimization.....16
Developing and Delivering Child-Safety Programs.....17
Investigation of Family-Abduction Cases by the Prosecutor’s Office.....17
Missing-Children Clearinghouses.....18
Newborn/Infant-Abduction Program.....18
Identifying and Tracking the Sex Offender.....19
Extending Resources to Missing Young Adults.....19
Children Missing From Care Project.....20
Recovery of Long-Term Missing Children.....20
Reunification of Missing Children.....20
National Emergency Child Locator Center.....21
Obtaining Resource Material.....21
Conclusion.....21
References: Citations and Related Resources.....22
The Initial Response by Stephen E. Steidel, Robert Hoever, and H. Wayne Sheppard.....25
Quick Reference.....25
Initial-Response Investigative Checklist.....27
Administrative.....27
First Responder.....28
Supervisory Officer.....30
Investigative Officer.....31
Initial-Response Components.....34
Administrative Component.....34
Call Intake.....34
Radio Broadcasts.....35
Nlets.....36
Fugitive Search Plans.....36
Special Tipline or Hotline.....36
Media Relations.....36
Missing and Abducted Children - iii
First-Responder Component.....36
Responding to the Scene.....36
On-Scene Activities.....37
Supervisory Component.....41
Debriefing the First Responder.....41
Establishing a Command Post.....42
Mobilizing Investigative Resources.....42
Implementing Perimeter Patrol.....42
Maintaining Media Relations.....43
Supervising the Situation.....43
Investigative Component.....44
Debriefing the First Responder(s).....44
Interviewing Witnesses.....44
Developing Assessment Criteria.....45
Neighborhood Canvassing.....45
Roadblock Canvassing.....45
Activating Response Protocols.....46
Search Component.....46
Conclusion.....46
References: Citations and Related Resources.....47
Nonfamily Abduction by Charles Masino; Robert G. Lowery, Jr.; and H. Wayne Sheppard.....49
Quick Reference.....49
Nonfamily-Abduction Investigative Checklist.....51
Initial Investigation.....51
Prolonged Investigation.....51
Recovery/Case Closure.....52
Definition of Nonfamily Abduction.....53
The Initial Response.....53
Planning.....54
Tactical Considerations.....56
Neighborhood Canvass.....56
Information-Management System.....57
Use of Polygraph.....57
Multiple-Suspect Issues: Short- and Long-Term Cases.....58
Establishing a Command Post.....59
Hotline.....59
Family Liaison.....60
Liaison With Community Groups and Nonprofit Organizations.....61
Consultation With NCMEC’s Team Adam.....62
Investigative Considerations.....63
General.....63
Regarding Newborn/Infant Abductions.....63
Statistics.....63
The Offender.....64
Use of Violence.....66
The Response.....66
Crime-Scene Analysis and Offender Profiles.....68
The Prolonged Investigation.....70
Recovery/Case Closure.....72
Reunification Issues of Nonfamily Abduction.....72
Guidelines for Handling the Reunification of a Nonfamily-Abducted Child.....73
iv - Missing and Abducted Children
Conclusion.....74
References: Citations and Related Resources.....74
Family Abduction by Preston Findlay, Eliza Harrell, and Maureen Heads.....77
Quick Reference.....77
Family-Abduction Investigative Checklist.....79
Initial Response.....79
Ongoing Investigation.....79
Prolonged Investigation.....80
Recovery/Case Closure.....80
Definition of Family Abduction.....81
Initial Response.....81
Risk Assessment.....81
NCIC Entry.....83
Use of Media and Clearinghouses.....84
Violations of Law.....84
Determining Legal Guardianship or Custody.....85
Criminal Law Violations.....86
Family Abduction: Crimes Under State Law.....87
Family Abduction: Crimes Under Federal Law.....88
Using Civil-Court Orders.....89
Ongoing Investigation.....89
Prolonged Investigation.....92
International Cases.....93
Abductions-In-Progress.....93
Civil Remedies.....95
Criminal Remedies.....95
Other Remedies.....97
Extradition.....97
Immigration and Nationality Act.....98
Deportation.....98
Passport Revocation.....98
Passport Fraud.....98
Diplomatic, Mediated, or Voluntary Returns.....99
Liability, Immunity, and Other Protections.....99
Liability for Taking Action.....99
Liability When No Action Is Taken.....100
Immunity.....100
Other Protections From Liability.....101
Prevention.....102
Recovery and Reunification.....103
Conclusion.....104
References: Citations and Related Resources.....105
The Runaway Child by Lee Reed.....107
Quick Reference.....107
Runaway Investigative Checklist.....109
The Initial Investigation.....109
The Prolonged Investigation.....109
Recovery/Case Closure.....110
Definition of Runaway Children.....111
Investigating Cases of Runaway Children.....111
Missing and Abducted Children - v
Role of the First Responder.....111
Role of the Assigned Investigator.....112
Family Residence.....112
Friends.....113
School/Teachers/School Resource Officers.....113
Community Agencies/Organizations.....114
Assessing Cases of Runaway Children.....114
Risk Factors.....114
Runaways and the Internet.....115
Runaways and the Commercial Sexual Exploitation of Children.....116
Prolonged Investigation.....116
Recovery and Case Closure.....118
Procedural Steps.....118
Disclosure of Exploitation or Abuse.....118
Returning Runaways From Distant Locations.....119
Reunification Issues of Runaway Children.....119
Guidelines for Handling the Reunification of a
Runaway Child.....120
Evaluation of Agency Policies Regarding Runaway Children.....121
Proactive Programs.....121
Conclusion.....122
References: Citations and Related Resources.....122
Agency Self-Assessment: Cases of Runaway Children.....124
Searches for Critically Missing Children by Robert G. Lowery, Jr.; Henry
Schmidt; Lee Manning; and Ron Olive.....125
Quick Reference.....125
Planning Prior to An Incident.....127
Initial Response.....129
Planning the Search.....131
Lost-Person Behavior.....131
Probable Distances of Travel.....132
Typical Behavior of Children Aged 1 to 6.....132
Typical Behavior of Children Aged 7 to 12.....132
Health Challenges.....133
Preparing for the Search: Additional Considerations.....133
Searches.....134
Search Tactics: The Basics.....134
Type I: Hasty Search.....134
Type II: Systematic Search.....135
Type III: Thorough Search.....136
Other Search Considerations.....137
When a Landfill Search Is Considered.....138
Documentation.....139
References: Citations and Related Resources.....139
Investigative Resources by Stephen E. Steidel and Thomas G. Sirkel Jr......141
Quick Reference.....141
Resource Agencies and Organizations.....143
National Center for Missing & Exploited Children®.....143
Missing Children Division.....144
Case Analysis Division.....146
vi - Missing and Abducted Children
Family Advocacy Division.....146
Exploited Children Division.....147
NCMEC Investigative Publications.....148
NCMEC’s Commitment to Law Enforcement.....148
National Crime Information Center.....148
Missing Person File.....148
Unidentified Person File.....149
Offline Search.....150
Federal Agency Task Force for Missing and Exploited Children.....151
Additional Federal Resources.....151
Missing-Children Clearinghouses.....154
Nonprofit, Missing-Children Organizations.....154
National Association for Search & Rescue.....155
Local, State, and Regional Resources.....155
Preincident Planning.....156
References: Citations and Related Resources.....157
Crisis Media Relations by Hugh Munn.....159
Quick Reference.....159
The Law Enforcement-Media Relationship.....161
Legal Review.....162
At the Scene.....162
Access to Records.....163
Perceptions.....164
Crisis Forecasting.....164
Emergence of the “New” News Reporter.....165
Managing High-Profile Cases.....165
Recommendations and Suggestions.....167
References: Citations and Related Resources.....167
Management Issues by Thomas B. Smith and H. Wayne Sheppard.....169
Quick Reference.....169
Define and Evaluate Current Operational Procedures.....171
Develop New Operational Policies and Procedures.....173
Identify New Objectives and Goals.....174
Consider Establishing a Dedicated Missing-Child Unit.....176
Evaluate Implementation Issues.....176
Program Implementation.....177
Children Missing From Care: Special Management Considerations.....179
Conclusion.....181
References: Citations and Related Resources.....181
Agency Self-Assessment: Missing-Children Preparedness.....183
Agency Self-Assessment: Children Missing From Care.....186
Use of Volunteers in Missing-Child Units.....187
Volunteer Assigned to Missing-Child Unit: Sample Job-Description Statement.....188
Appendices.....191
Quick Reference.....191
Appendix A: NCIC Missing-Person-File Categories.....193
Appendix B: NCIC Child-Abduction Flag.....194
Appendix C: Victim/Family Data-Collection Questionnaire.....195
Index.....205
Missing and Abducted Children - vii
Table of Figures
Figure 1: Significant Measures Enacted to Assist Children At-Risk.....4
Figure 2: Key Findings From the Second National Incidence Studies of Missing,
Abducted, Runaway, and Thrownaway Children.....12
Figure 3: Sources of Statistical Information About Missing and At-Risk
Children.....13
Figure 4: Risk Factors.....39
Figure 5: Post-Offense Behavior of Killers.....40
Figure 6: Risk Factors.....56
Figure 7: The “Typical” Newborn/Infant Offender.....65
Figure 8: Key Initiatives.....82
Figure 9: NCIC Tips for Entering Information About Family-Abduction Cases.....83
Figure 10: Key Questions Regarding Initial Response.....85
Figure 11: Key Questions Regarding Potential Law Violations.....87
Figure 12: NCIC Offline Searches.....90
Figure 13: Records.....91
Figure 14: Additional Resources.....92
Figure 15: Key Questions Regarding International Abductions.....97
Figure 16: Contact Information for Key Resources at the U.S. Department of
State.....102
Figure 17: Key Question Regarding Return.....103
Figure 18: Guidelines for Handling the Reunification of a Family-Abducted
Child.....104
Figure 19: Risk Factors.....115
Figure 20: NCMEC Case Types.....144
Figure 21: NCMEC Case-Intake Criteria.....144
Figure 22: Military-Worldwide Locator Services.....153
Figure 23: Steps to Follow When Evaluating an Agency’s Missing-Child
Response.....171
Figure 24: Sample Goals and Objectives.....175
Figure 25: Potential Division of Responsibilities in a Dedicated Missing-
Child Unit.....177
viii - Missing and Abducted Children