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You need the Dominator skill in the Mastermind tree.
Hurt an enemy until he is at lower health, but not enough to kill him (obviously). Intimidation chance works similarly to catching Pokemon, where the lower their health is, the higher chance of intimidation.
The chance will also be higher when:
1. The enemy is knocked down or being tased
2. The enemy is reloading
3. You are flanking the enemy
Press your shout key (default F). The enemy will be intimidated if they raise their arms over their heads in surrender. If this happens, yell at them 2 more times; doing this will handcuff the enemy.
http://steamcommunity.com/app/218620/discussions/10/392183857627166129/?tscn=1458321752#c392184342866297267
Because Dominator should've been a passive skill since release, like the first game. It's really annoying that the last player left is the only one that doesn't have Dominator and there're no civilians left.