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Perhaps a better question would be what level of resisting arrest justifies this level of retaliation. I could be entirely wrong, but I was under the impression that the policy with pepper spray (at least in that area) is that it is prohibited unless it is being used to directly prevent harm. Meaning, in this situation, it was unjustified assault and/or use of excessive force.
In that sort of situation, when arrest is being resisted in a peaceful manner, some form of restraint seems necessary, such as simply arresting them individually. But that was probably too much work.
If they can't remove individuals who are deliberately resisting arrest with two or three police officers then they should use either tear gas, pepper spray or Tazer to get those resisting arrest to submit and allow the police officers to remove them.