VIRGINIA BEACH, Va. – The Virginia Beach Sheriff’s Office (VBSO) and Sheriff Rocky Holcomb today announced the results of an independent review of its entire organization – including use of force/response to resistance – conducted by the nationally recognized Police Executive Research Forum (PERF).
PERF conducted a “Review of Virginia Beach Sheriff’s Office’s Policies, Procedures, Training, Tactics, Techniques, Tools, Equipment, and Culture Related to Response to Resistance and Use of Force” at Holcomb’s request following the death of inmate Rolin Hill in June 2024. The comprehensive review included confidential interviews with staff, touring the facility, and reviewing training and policies. In addition, PERF analyzed all 457 use of force (UOF)/response to resistance (RTR) incidents that occurred in 2024.
PERF’s analysis of the VBSO’s training, policies and practices regarding UOF/RTR was overwhelmingly favorable and confirmed that Hill’s June 2024 death was an “isolated and atypical” incident.
“The VBSO initiated this review in the wake of an in-custody death that understandably prompted deep reflection and a commitment to reassessing policies, practices, and organizational culture,” according to the report, completed earlier this year. “PERF’s comprehensive analysis found that, although the incident that spurred this review was extraordinarily serious, VBSO otherwise demonstrates professionalism, a strong training culture, and a genuine dedication to the dignity and safety of those in its care—providing a solid foundation on which to build further improvements. Deputies and supervisors consistently expressed pride in their work and a clear willingness to adopt reforms that strengthen safety, accountability, and public confidence.”
Upon receiving the report, the VBSO took immediate action to implement PERF’s recommendations, which were predominantly administrative in nature, such as updating and/or consolidating policies. These actions have included:
- Revising the VBSO’s UOF/RTR policy to narrow the definition of reportable incidents in alignment with best practices from other law enforcement organizations nationwide.
- Implementing an automated UOF/RTR reporting system to improve consistency and ability to identify issues and track patterns.
- Adopting a policy statement affirming the sanctity of human life.
- Changing the requirements for inmates who require direct observation for suicidality to reduce direct observation of uncooperative, but not suicidal, individuals (additional details below).
- Working toward publishing the VBSO’s policies online, which will be completed later this year.
“The death of Rolin Hill was a tragedy that weighs heavily on all of us, and our thoughts remain with his loved ones. From the beginning, we committed to a full, independent investigation and review of our policies, training, practices and culture so that we could honestly examine any needed improvements. This report by the Police Executive Research Forum confirms that what occurred on June 4, 2024, was an ‘isolated and atypical incident’ at the Virginia Beach Sheriff’s Office. PERF found that our deputies exercise restraint, that uses of force resulting in injury are relatively uncommon, and that our office demonstrates a strong commitment to transparency, accountability and training,” said Holcomb. “At the same time, we recognize there is always room to improve. We welcome PERF’s recommendations and are already moving forward with efforts to modernize reporting systems, strengthen oversight and enhance training for our staff. Our responsibility is to provide a safe, professional, rehabilitative and humane environment for everyone in our care, and we remain fully committed to earning and maintaining the public’s trust.”
“We were very impressed with the VBSO, its members’ dedication, and its willingness to open its doors and allow us to review its policies and practices,” said PERF Executive Director Chuck Wexler. “As outlined in the report, many opportunities for improvement stem from the current lack of automation. I commend the Sheriff for taking steps to modernize these systems, which should address many of the areas our team identified.”
Additional Highlights
A significant finding was that 75% of the VBSO’s 457 UOF/RTR incidents in 2024 involved “deputies using no more than soft-hand control techniques” including escorts and holds without strikes that resulted in no injuries and would not be classified as reportable offenses by many other law enforcement agencies. Additionally, PERF found that only 14% of incidents resulted in an injury to the subject involved, which drops to only 5% when excluding the use of OC spray. Video from body-worn cameras and/or facility security cameras captured 96% of incidents.
“Inside and outside the VBCC, the subject injury rates are very low. This is particularly notable given the subject fatality incident that prompted this review; it suggests that subject injuries associated with RTR events at the VBSO are relatively uncommon,” PERF concluded.
PERF reported that the “VBSO’s RTR policy has many strengths that are often lacking in comparable agencies’ policies” including:
- Proactive integration of PERF’s “15 Principles for Reducing the Risk of Restraint-Related Death”
- Requiring deputies to continuously monitor an inmate’s condition during and after restraint
- A clear section on de-escalation
- Requiring that force be “reasonable and proportionate to the threat of resistance encountered” and immediately reduced as the threat diminishes or ceases
- Requiring that deputies intervene if they observe another using excessive force (duty to intervene)
- Defining aiming a firearm as deadly force
- Prohibiting firing at a moving vehicle
“Through confidential interviews with staff across various ranks, we found that members of the
VBSO take pride in their work and view the Rolin Hill case, which prompted this review, as an isolated and atypical incident,” according to the report. “While many at the sheriff’s office acknowledged that certain policies and practices could benefit from updating, they shared a consistent belief that their agency strives to deliver services that uphold the dignity and humanity of those in its custody—particularly individuals affected by mental illness, substance use, or both.”
Over the past year, the VBSO has reduced inmate direct observation placements by 66% — from an average of about four inmates per day to one — through stricter adherence to mental health and suicide-watch best practices, improved intake assessments, expanded mental health support and proactive collaboration between deputies, medical staff and clinicians. The reduction eases staffing demands and reflects improved inmate wellness, fewer crisis situations and the VBSO’s continued commitment to mental health care inside the jail.
About PERF
The Police Executive Research Forum (PERF) is an independent research organization that focuses on critical issues in policing. Since its founding in 1976, PERF has identified best practices on fundamental issues such as reducing police use of force; developing community policing and problem-oriented policing; using technologies to deliver police services to the community; and evaluating crime-reduction strategies.
PERF strives to advance professionalism in policing and to improve the delivery of police services through the exercise of strong national leadership; public debate of police and criminal justice issues; and research and policy development.
For more information, visit policeforum.org .
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