RAF Manual Explained: Negotiations First, Pellet Guns Second-Last Resort During Riot Control

Last Updated:July 24, 2026, 12:39 IST

The manual lays down a step-by-step sequence, beginning with dialogue and ending, only in exceptional circumstances, with the use of live ammunition

The Rapid Action Force (RAF), the specialised anti-riot wing of the Central Reserve Police Force (CRPF), follows a doctrine of graduated escalation while dealing with riots and violent public disorder. The RAF Manual makes it clear that the force’s primary objective is not to suppress crowds through coercion but to prevent violence through restraint, persuasion and the minimum force necessary. It describes a pre-riot situation as one where violence may erupt “at any moment" and directs personnel to respond with “great restraint, calm and discretion."

The manual lays down a step-by-step sequence, beginning with dialogue and ending, only in exceptional circumstances, with the use of live ammunition. It also prescribes what commanders should do after a riot is brought under control, including relief, rehabilitation and measures to prevent fresh violence.

Using pellet guns comes as the second last option for RAF, just before the firing of live bullets, and involves a lot of documentation, inquiry and investigations.

Prevention Before Force

According to the RAF Manual, the first responsibility of a contingent commander is to prevent an agitated crowd from becoming a violent mob. It specifically directs commanders to dissuade protesters through negotiation, persuasion and appeal and states that force should be employed only if these measures fail. Even then, only the minimum force necessary should be used.

When deployed, the minimum anti-riot contingent is normally a platoon. A set number of teams undertake riot-control duties while one remains in reserve along with fire-fighting, rescue, first-aid, relief and Mahila personnel. The contingent is instructed to stop at a safe distance from the crowd, quickly form up in an appropriate formation and advance in a disciplined manner, maintaining a minimum distance from the gathering. The manual says the professional appearance and movements of the RAF should themselves exert a psychological effect on the crowd.

Negotiation, Persuasion And Warning

Once deployed, the contingent commander is expected to address the crowd’s leaders through a portable public address system and encourage dialogue. The manual recommends involving local police officers, magistrates and respected community leaders in persuading the crowd to disperse voluntarily. It advises commanders to remain polite but firm, cautioning against both appearing weak and adopting an unnecessarily authoritarian tone.

If negotiations fail, the assembly is to be declared unlawful and a formal warning issued directing people to disperse. The warning must be delivered clearly over the public address system and may also be displayed on banners in the local language. Commanders are instructed to allow sufficient time for the warning to register and, if necessary, repeat it several times before escalating further.

The Graded Use Of Force

The RAF Manual provides a graduated scale of force, leaving the choice to the contingent commander depending on the situation while emphasising “utmost restraint."

Water Cannons

The first coercive measure is the use of water cannons. The manual envisages the use of both plain and coloured water. Coloured water serves a dual purpose: it helps push the crowd back while also assisting in identifying a few afterwards. The manual states that the water jet can knock a person down within 25 to 30 metres.

Tear Gas

If water cannons do not achieve dispersal, commanders may deploy tear smoke munitions. The manual notes that different types of tear smoke are available and the commander should choose the type based on operational requirements and the intended effect. It also cautions against excessive use because of certain reasons.

Shock Batons And Lathis

If tear gas also fails, riot-control teams are instructed to advance in wedge or extended-line formation using shock batons and lathis. The manual says each team is authorised two shock batons. According to the document, these batons deliver a localised electric shock without causing burns or a through-body current and are designed primarily to repel rather than seriously injure. It bars casual use of shock batons as well.

Rubber Bullets

Where other methods prove ineffective, particularly against arsonists or violent groups, the firing element may employ rubber bullets directed at specific targets. The manual instructs riot-control teams to immediately exploit the impact of rubber bullets by advancing to disperse the crowd while the firing element is brought forward through an opening created by the riot-control line. A senior RAF officer said that firing pellet guns also comes under this category. That is the second last option for RAF and requires a strong pre- and post-process of documenting everything. It is one of the toughest in terms of process and requires a lot of post-documentation followed by inquiry and investigations.

Live Ammunition

The final stage is the use of live ammunition. The RAF Manual says actual bullets should be used only to neutralise a person firing at the contingent or to save human life where there is an imminent threat, such as a stabbing or a mob attacking someone who may otherwise be killed. Even in those situations, it states that the objective is not to kill the assailant but to save the victim, directing personnel to aim low.

Medical Support During Operations

The manual requires that a medical officer and paramedical staff accompany RAF contingents during communal riots, riot-like situations and rescue operations. Their role is to provide immediate medical assistance not only to RAF personnel but also to civilians injured during firing, lathi charge or the use of tear smoke.

Recording And Reviewing Operations

The manual emphasises that operations do not conclude when troops leave the scene. It requires briefing before deployment and debriefing afterwards so that intelligence gathered during the operation, operational shortcomings and lessons learned are documented. Situation reports are to be prepared and communicated through the command chain. It also stresses that organised withdrawal is as important as rapid deployment and warns against keeping units on prolonged alert beyond what is operationally necessary.

Maintaining Order After Dispersal

The RAF Manual says dispersing a mob does not end the operation. Commanders are instructed to continue preventive patrolling until complete normalcy returns. Police pickets are to be established in sensitive localities, extensive searches conducted for firearms, explosives and incendiary material, and known troublemakers rounded up under preventive provisions in coordination with local police.

The manual also recommends protecting vital installations, establishing checkpoints at entry points, conducting flag marches to reassure residents, countering rumours, activating peace committees and encouraging the media to broadcast appeals for communal harmony. It further advises arranging protected funerals, ensuring medical care, permitting chemist shops to function, facilitating door-to-door supply of essential commodities where required and providing psychological support, particularly to women and children affected by the violence.

Relief And Rehabilitation

In the post-riot phase, the RAF Manual says the force should “apply a healing touch" to affected communities. It instructs commanders to establish a reporting centre and conduct a survey to identify damaged buildings, displaced persons, separated families, damaged roads and disruption to essential services such as water supply and sewerage. Teams are then assigned tasks such as providing primary repairs, assisting homeless residents and supporting relief efforts alongside civil authorities.

Mahila personnel are specifically assigned roles in first aid, assisting traumatised women and children and conducting searches involving women where necessary.

About the Author

Ankur SharmaAssociate Editor

With more than 17 years in journalism, Ankur Sharma is an Associate Editor specializing in internal security and strategic affairs. He covers the Ministry of Home Affairs, paramilitary forces, and cen...Read More

News explainers RAF Manual Explained: Negotiations First, Pellet Guns Second-Last Resort During Riot Control

Read More