The Obama administration issued guidelines on Wednesday that recommended public school officials use law enforcement only as a last resort for disciplining students, a response to a rise in zero-tolerance policies that have disproportionately increased the number of arrests, suspensions and expulsions of minority students for even minor, nonviolent offenses.

The secretary of education, Arne Duncan, and the attorney general, Eric H. Holder Jr., released a 35-page document that outlined approaches — including counseling for students, coaching for teachers and disciplinary officers, and sessions to teach social and emotional skills — that could reduce the time students spend out of school as punishment.

“The widespread use of suspensions and expulsions has tremendous costs,” Mr. Duncan wrote in a letter to school officials. “Students who are suspended or expelled from school may be unsupervised during daytime hours and cannot benefit from great teaching, positive peer interactions and adult mentorship offered in class and in school.”

Data collected by the Education Department shows that minorities — particularly black boys and students with disabilities — face the harshest discipline in schools.