Issue Brief: California Law Enforcement Survey

Issue Brief: California Law Enforcement Survey November 2021 Executive Summary In the fall of 2020, the Little Hoover Commission launched a study to examine the role of the Commission on Peace Officer Standards and Training (POST) in shaping law enforcement training standards for California’s peace officers. As part of this work, the Commission anonymously surveyed active-duty peace officers in May 2021 to learn more about the training they receive through POST. Over 300 officers responded to the survey, and their answers, detailed in this Issue Brief, provide critical insight into the strengths and shortcomings of police training in California. Officers’ survey responses affirmed the value of the training they receive, but also pointed to problems. ◊ Overall, training in California is perceived to be superior to training in other states. Over 80 percent of officers said the training they receive is better than the training provided to their peers in different parts of the country. ◊ Officers overwhelmingly agreed that all forms of training – basic, field, in-service – are relevant to the work they do, yet officers are split on whether this formal training is more important than the informal on-the-job advice they receive from colleagues. ◊ Over 80 percent said stress-based academies provide essential training for law enforcement, and 76 percent agreed that California should continue using them. Sixty-four percent of officers said non-stress academies are not as effective as stress-based ones for preparing officers for the reality of policing. Still, throughout the survey officers also identified pressing challenges that could be addressed to improve the training they receive. ◊ Over half of officers said certain subjects are not adequately covered by existing training curriculum. Mental health, de-escalation, legal processes and procedures, use of force, and officer wellness were identified as topics for which training is lacking. ◊ Various barriers prevent officers from pursuing additional training. Finding staff to backfill positions while officers receive training is frequently a barrier for 52 percent of respondents, while financing is a roadblock for almost half. ◊ Nearly 70 percent of officers said there needs to be greater consistency in training across California’s 692 law enforcement departments and 41 basic training academies. ◊ Oversight of training outcomes and their effectiveness is missing. More than 80 percent of officers agreed that POST should monitor training outcomes and adjust its standards and curricula accordingly, while almost 70 percent said POST should incorporate research on training effectiveness into its training standards. We hope this Brief will serve as a resource for state policymakers as they evaluate ways to improve police training to benefit peace officers and all Californians. Issue Brief: California Law Enforcement Survey November 2021 Introduction In the fall of 2020, the Little Hoover Commission launched a study to examine the role of the Commission on Peace Officer Standards and Training (POST) in shaping law enforcement training standards for California’s peace officers. As part of its review of law enforcement training in California, the Commission anonymously surveyed active-duty peace officers in May 2021 to learn more about the training they receive through POST. Over 300 officers responded to the survey, and their answers, detailed in this Issue Brief, provide critical insight into the strengths and shortcomings of police training in California. We hope this Brief will serve as a resource for state policymakers as they evaluate ways to improve police training to benefit peace officers and all Californians. Survey Findings CALIFORNIA’S TRAINING IS PERCEIVED TO BE BETTER THAN OTHER STATES According to officers, overall law enforcement training in California is better than other states’ training. Based on conversations with law enforcement colleagues in different parts of the country, 81 percent of respondents said the training they receive in California is better than the training provided to their peers in other states. “California public safety training is the gold standard throughout the United States,” said one officer. “POST provides excellent training and continues to challenge themselves to improve throughout the years,” said another. “I’m happy to be sworn in California with high standards of training.” Eighteen percent said the training is about the same, while two percent said California’s training is worse. “Based on your conversations with law enforcement colleagues in other states, do you feel that the training provided to California officers is better, the same, or worse?” 81% 18% 2% Better Same Worse LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 2 Issue Brief: California Law Enforcement Survey November 2021 ALL FORMS OF TRAINING ARE RELEVANT “practical patrol experience.” Field training must There are three main forms of training officers be provided for a minimum of 10 weeks, although receive at different stages of their law enforcement most programs in the state are 12 to 16 weeks career. long.3 ◊ In-service training consists of professional ◊ Basic training occurs at 41 basic academies development courses focused “on furthering the located throughout California. Academies must skills, knowledge, and training of peace officers.”4 teach a minimum of 664 hours of POST-developed Officers must receive 24 hours of Continuing training in 42 different topics, known as Learning Professional Training every two years, and 14 of Domains, that include subjects such as leadership, those 24 hours must provide training in arrest professionalism, and ethics; juvenile law and and control, firearms, driving, and strategic procedures; search and seizure; use of force and communications.5 de-escalation; domestic violence; first aid; and Basic, field, and in-service training each play different cultural diversity/discrimination. Recruits in basic yet important roles in officers’ education. According academy “are subject to various written, skill, to respondents, each form of training builds upon exercise, and scenario-based tests” and must fundamentals learned in previous trainings, and also complete “a rigorous physical conditioning each provides its own unique perspective on program which culminates in a physical ability test policing. “It’s like a three-legged stool,” one officer at the end of the academy.”1 said. “Each one is a vital support.” Basic training is ◊ Field training is hands-on experience designed the foundation upon which all other peace officer to “facilitate [officers’] transition from the basic training builds, while field training teaches officers academy to performing general uniformed patrol how to implement what they learn in the academy. duties.”2 Officers are trained on actual calls for In-service training is lifelong learning and is the service under the guidance and direction of the primary way officers stay up-to-date on training. Field Training Officer, a seasoned officer with “Which do you 47% feel is more 53% important in Informal on- your day-to-day Formal training the-job advice police work?” LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 3 Issue Brief: California Law Enforcement Survey November 2021 As one respondent noted, “All three categories [of training] serve a particular purpose in one’s career. To say one is more important than another is not taking into consideration the various stages 81% of a law enforcement career.” Nearly 100 percent agree stress- of respondents (97 percent) said field training is based academies relevant or very relevant to their everyday police provide essential work, while strong majorities said the same about training for law basic (83 percent) and in-service training (91 percent). enforcement While officers overwhelmingly affirm the value of basic, field, and in-service training, they are split on whether this formal training or on-the-job advice from colleagues is more important in their day-to- day police work. More than half of respondents (53 percent) said formal training is more important on a daily basis, yet 47 percent said the opposite. STRESS-BASED ACADEMIES HAVE VALUE Majorities of officers affirmed the importance of 76% stress-based academies – interpreted by officers agree California as reality-based scenario training that simulates should continue everyday stressful situations – as a crucial strategy to use stress- to prepare recruits for the stressors they will face based academies on the job. Eighty-one percent of respondents said stress-based academies provide essential training for law enforcement, while 76 percent agreed that California should continue using these academies. Sixty-four percent said non-stress academies are not as effective as stress-based ones for preparing officers for the reality of policing. When asked later on in the survey how they would design a training and educational program for California law enforcement, respondents said 64% stress-based training should be included. “I would say non-stress absolutely maintain a stress academy to ensure law academies are enforcement officers do NOT overreact to stressors,” not as effective as one respondent said. “Too many times we see law stress-based ones enforcement officers overreact because they were overcome by stress. Stress inoculation allows a person to make better, calculated decisions over the person who can’t handle the stress.” Others noted LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 4 Issue Brief: California Law Enforcement Survey November 2021 the importance of stress-based training at the beginning of an officer’s law enforcement education but wanted to see a pivot to less stressful training afterward. “The academy still needs to remain stressful, at least at first,” one officer replied. “As academies have become more relaxed I have seen an increase in field officers who lack confidence or don’t handle field confrontations well. “Too many times we see law enforcement officers overreact because they were overcome by stress. Stress inoculation allows a person to make better, calculated decisions over the person who can’t handle the stress.” - Survey Respondent After the initial washout of recruits who don’t work well under stress, the environment should change to less stress to allow recruits to take in the maximum amount of information.” As another said, “Include some amount of high stress early in the academy (first several weeks), but don’t run the whole academy like a boot camp.” SOME TRAINING TOPICS ARE LACKING While officers affirmed the importance of all types of police training, over half (53 percent) said there are subjects not adequately covered by existing training curriculum. Mental health was one of the most common topics officers identified that is not addressed well by current training. “With the changes in the climate and the call for more attention to this field, we need more training in crisis intervention and de-escalation techniques when dealing with those suffering from behavioral health issues,” one respondent said. Respondents also emphasized the need for officer mental health training on how to “effectively deal with family and mental health issues,” and “cope with stress from the job.” Other topics that officers said are not currently covered well in training are use of force; legal processes and procedures such as courtroom preparation and testifying, submitting evidence in court, and updates on legal changes; and de-escalation. “Most of [de-escalation training] is theory and adequate simulator training. Let’s get hands on training taught by mental health specialists “Are there any training subjects that are not adequately covered by existing curriculum?” Yes 53% No 47% LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 5 Issue Brief: California Law Enforcement Survey November 2021 or therapists,” an officer suggested. Numerous CONSISTENT TRAINING IS NEEDED officers also cited the need for more communication Approximately 70 percent of officers agree there training, including community and media relations, needs to be greater consistency in training across report writing, and interpersonal skills. “I don’t think California’s law enforcement departments and we teach people the realities of dealing with people academies. There are currently 692 law enforcement on the streets,” one respondent said. “It’s developed departments and 41 basic academies across over time but I think it could be taught from the California that provide state-mandated training beginning.” Another echoed the need for “realistic to officers, yet the variation in resources among verbal communication skills on how to deflect, these departments and academies is staggering. de-escalate, and mediate angry/hostile people.” Large departments such as the Los Angeles Police Additionally, officers said more training is needed Department or California Highway Patrol have on various tactics such as firearms, driving, and more resources and funding available to offer defensive techniques, including search and seizure supplemental training to their sworn personnel. and arrest and control tactics. Many small departments, however, are frequently unable to provide similar training opportunities to Some officers suggested increasing the availability their officers. “To improve access to training and of training to cover more topics. “Lawmakers pass consistency, POST could offer more courses versus laws constantly and it seems like we are not always leaving it up to the agencies to provide the training,” taught. Perhaps agencies or POST need to add one respondent said. “As a member of a smaller courses when new laws or court rulings occur,” an agency, we don’t have the resources and skill level to officer said. “The course catalog is comprehensive,” instruct ourselves.” another respondent noted, “but many of the courses have limited availability.” “How strongly do you agree or disagree with the following statement: There needs to be greater consistency in training across California’s law enforcement departments and academies.” 45% 40% 40% 35% 30% 25% 29% 20% 15% 17% 14% 10% 5% 1% 0% Strongly Agree Agree Not Sure Disagree Strongly Disagree LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 6 Issue Brief: California Law Enforcement Survey November 2021 BARRIERS PREVENT OFFICERS FROM ACCESSING TRAINING Many officers are prevented from continuing their policing education due to department-level barriers. For more than half of respondents (52 percent), finding staff to backfill their position while they attend training courses is frequently a barrier, while securing funding to attend training is almost always or often a roadblock for almost half of respondents (48 percent). One-fifth of officers said department culture (20 percent) and lack of support from superior officers (20 percent) are almost always or often barriers to continuing training. “How frequently are the following a barrier to your continuing education?” 40% 35% 34% 31% 30% 28% 28% 26% 26% 26% 25% 26% 25% 22% 21% 21% 20% 16% 16% 15% 12% 11% 9% 10% 8% 8% 7% 5% 0% Financing Department staffing/backfill Department culture Lack of support from leadership/superior officers Almost Always Often Sometimes Seldom Never OVERSIGHT OF TRAINING OUTCOMES AND EFFECTIVENESS IS MISSING Respondents overwhelmingly agreed that POST should take steps to study training outcomes and increase training effectiveness. More than 80 percent (82 percent) of officers agreed that POST should monitor training outcomes and adjust its standards and curricula accordingly, and almost 70 percent (69 percent) said POST should incorporate research on training effectiveness and apply those lessons to training curricula. KEY PRIORITIES FOR OFFICERS Respondents were also asked an open-ended question about which elements of training they would redesign if they could build a training and educational program for California law enforcement from the ground up. This question generated 163 responses, which were grouped by Commission staff into general areas of response. LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 7 Issue Brief: California Law Enforcement Survey November 2021 ◊ Stress- and reality-based. Thirty-three officers program are the staff and the instructors. Quality, said they would keep stress- and reality- dedicated professionals are a necessity,” one based training. “There is no better way to train respondent said. “Just because someone has than practical application,” an officer noted. rank does not make them qualified, and rotating Respondents said they would include more hands- people every 2-3 years in/out of training does on training rather than video and classroom-based not facilitate consistency or quality.” One officer education. “The most growth in [the field training suggested banning instructors who have been program] comes from actually dealing with calls retired from law enforcement for more than for service rather than going through the training five years, while another said only instructors manual,” said another. Others agreed. “We need to with bachelor’s degrees should be allowed to teach to the realities of what we’re going to face,” teach. Others said they would like to include one responded. “We need to focus on scenarios more instructors from outside law enforcement more than trying to [learn by the book].” to broaden the experience of trainees. One respondent suggested bringing in experts to ◊ Better access to and frequency of training. teach on subjects such as criminology, juvenile Seventeen officers said they would increase access justice, and re-entry programs, as well as on how to and frequency of training. Some officers noted to reduce violence and recidivism and incorporate that more online options for courses would be community outreach and involvement into helpful, while one respondent said POST could policing. offer more courses instead of requiring agencies – especially smaller ones without the resources “We need to teach the realities or skill level for instruction – to provide necessary of what we’re going to face,” training themselves. Others expressed a desire to make field training longer in order “to spread one officer responded. “We the items that need to be covered over a longer need to focus on scenarios more period of time.” As one respondent said, “I am still learning things that a ‘competent’ officer than trying to [learn by the should know because there are just hundreds of book].” situations that we need to know.” Several officers shared that there is not enough time to teach all of the topics required by legislative mandates. To ◊ Formal career pathways. The desire for better help officers complete all required training as well recruitment strategies and career pathways as training in any additional areas in which they into law enforcement was cited by six officers. need help, some respondents said they would Respondents said they would include greater mandate certain hours of training on a regular opportunities for officer recruitment and provide basis. One recommended eight hours of in-service career pathways out of high school. One officer training each month while another suggested four noted that many other countries handle law eight-hour sessions per year to cover all necessary enforcement training as if it were university-level material. training. The officer said trainees should ideally be selected from high school-based programs to ◊ High-quality instructors. The need for more complete a multi-year training program equivalent experienced instructors to train officers was cited to an undergraduate education at a university, by 13 officers. “The foundation of any training complete with internships with law enforcement LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 8 Issue Brief: California Law Enforcement Survey November 2021 departments and field work. “It would take time, but it should take time,” the officer responded. “It would also wash a lot of cadets out, but we should at the end of the day only end up with those most suited for the career.” Another suggested tying law enforcement training to the California state university and community college degree programs so interested students can take classes in law enforcement and receive “full academic honors” in the form of a bachelor or associate degree in the field. ◊ Greater diversity. Five officers said there needs to be greater diversity in policing. One officer noted that “new police officers often have very little life experience or exposure to other cultures. It needs to be addressed so they understand how law enforcement is perceived by different cultures they will be working with.” Respondents called for more diverse cadets, particularly more women and more people from minority communities. One officer said POST should change background requirements and processes for recruitment and reduce “restrictions that were originally put in place as a racist measure to keep marginalized people and people of color out of law enforcement.” “New police officers often have very little life experience or exposure to other cultures. It needs to be addressed so they understand how law enforcement is perceived by different cultures they will be working with.” - Survey Respondent ◊ Expanded topics for training. Respondents identified numerous topics they would include in training requirements. Sixteen officers said training should emphasize verbal skills and community relations, including providing more opportunities for trainees to interact with the public they will be serving. “This is a people job more than a law job,” one respondent said. Training on mental health was cited by eight officers, one of whom said “more empathetic training on behavioral health issues” is needed. Similarly, seven respondents said they would include more training on officer wellness to help officers cope with the stress of the job, incorporate a work-life balance, and practice mental resiliency. Five officers said they would include more training on legal processes and procedures, including courtroom testimony, report writing, and search and seizure laws. Numerous officers identified various tactical training as elements they would redesign in training, including de-escalation (eight officers), use of force (six officers), firearms (four officers), defensive tactics (four officers), driving (two officers), and emergency response (two officers). Demographics The majority of officers who responded to the survey (56 percent) had more than 20 years of experience as a police officer. More than half work in either city police (28 percent) or sheriff departments (27 percent), while 65 percent of officers work in law enforcement agencies with more than 100 officers. LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 9 Issue Brief: California Law Enforcement Survey November 2021 Most survey respondents have served as a peace officer for more than 20 years Share of survey respondents by years of experience as a peace officer Less than 1 1 to 2 3 to 4 2% 2% 2% 5 to 9 11% 10 to 14 12% 20 or more 56% 15 to 19 15% More than half of respondents work with either city police or sheriff’s departments Share of survey respondents by agency type City 28% Other 38% District Attorney Sheriff University 7% 27% 0.41% LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 10 Issue Brief: California Law Enforcement Survey November 2021 Most respondents work in departments with more than 100 officers Share of survey respondents by agency size Less than 20 7% 21 to 50 13% 51 to 100 15% More than 100 65% Methodology The survey was conducted between Tuesday, April 27 and Tuesday, June 1, 2021. To ensure the anonymity of respondents, the Commission designed the survey using Survey Monkey, a web- based tool that did not track any personally identifying information or how officers accessed the survey. Additionally, the Commission partnered with statewide law enforcement associations to help facilitate distribution and ensure that only current California peace officers received the survey link. Associations that sent their members a link to the survey include the California Police Chiefs Association, the Peace Officers Research Association of California, the California State Sheriffs’ Association, the California Peace Officers Association, the California Statewide Law Enforcement Association, and the California District Attorneys Association. LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 11 Issue Brief: California Law Enforcement Survey November 2021 Appendix A: Survey Questions The Commission received survey responses from 302 officers. Respondents were asked a maximum of 14 questions. Below are the questions asked in the survey: 1. Which do you feel is more important in your day-to-day police work? Responses Percent Formal training you have received 159 52.82% Informal on-the-job advice from colleagues 142 47.18% 2. How relevant are the following to your day-to-day police work? Very Relevant Relevant Slightly Relevant Not Relevant Not Sure Total Basic training 40.36% 42.14% 15.36% 2.14% 0% 280 113 118 43 6 0 Field training 76.70% 20.07% 2.15% 1.08% 0% 279 214 56 6 3 0 In-service 64.29% 26.79% 6.79% 1.79% 0.36% 280 training 180 75 19 5 1 3. Are there any training subjects that are not adequately covered by existing curriculum? Responses Percent Yes 143 52.57% No 129 47.43% 4. What subjects are not adequately covered in existing curriculum? 112 open-ended responses 5. How frequently are the following a barrier to your continuing education? Almost Always Often Sometimes Seldom Never Total Financing 22.00% 25.60% 27.60% 16.40% 8.40% 250 55 64 69 41 21 Department staffing/backfill 26.07% 26.07% 25.29% 15.95% 6.61% 257 67 67 65 41 17 Department culture 10.55% 9.38% 21.48% 27.73% 30.86% 256 27 24 55 71 79 Lack of support from your 11.63% 7.75% 20.54% 26.36% 33.72% 258 leadership/superior officers 30 20 53 68 87 LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 12 Issue Brief: California Law Enforcement Survey November 2021 6. Based on your conversations with law enforcement colleagues in other states, do you feel that the training provided to California officers is better, the same, or worse? Responses Percent Better 205 80.71% About the same 45 17.72% Worse 4 1.57% 7. How strongly do you agree or disagree with the following statements? Strongly Strongly Agree Agree Not Sure Disagree Disagree Total POST should incorporate 23.41% 45.24% 18.65% 9.52% 3.17% 252 academic research on training 59 114 47 24 8 effectiveness and apply those lessons to its standards and curricula. POST should monitor training 32.14% 49.60% 11.90% 5.56% 0.79% 252 outcomes and adjust its standards 81 125 30 14 2 and curricula accordingly. 8. How strongly do you agree or disagree with the following statements? Strongly Strongly Agree Agree Not Sure Disagree Disagree Total Stress-based academies provide 46.18% 34.54% 8.43% 8.43% 2.41% 249 essential training for law 115 86 21 21 6 enforcement. Non-stress academies are just 6.40% 12.80% 16.80% 35.60% 28.40% 250 as effective as, or more effective 16 32 42 89 71 than, stress-based academies for preparing officers for the reality of the job. California should move away from 5.60% 7.60% 10.80% 27.60% 48.40% 250 stress-based academies. 14 19 27 69 121 9. How strongly do you agree or disagree with the following statement? Strongly Strongly Agree Agree Not Sure Disagree Disagree Total There needs to be greater 28.69% 39.84% 16.73% 13.94% 0.80% 251 consistency in training across 72 100 42 35 2 California’s law enforcement departments and academies. LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 13 Issue Brief: California Law Enforcement Survey November 2021 10. If you could build a training and educational Notes program for California law enforcement from the ground up, what elements would you redesign? 1. Commission on Peace Officer Standards and Training. “Basic 163 open-ended responses Training Academies.” https://post.ca.gov/basic-training-academies ----. “Peace Officer Basic Training.” https://post.ca.gov/peace-offi- cer-basic-training 11. Please share any additional comments below. 58 open-ended responses 2. Commission on Peace Officer Standards and Training. “POST-Ap- proved Patrol Training Programs.” https://post.ca.gov/field-train- ing--police-training 12. How many years have you served as a peace officer? 3. Commission on Peace Officer Standards and Training. “Field Train- ing Program Guide Volume 1: Overview and Appendices.” https:// post.ca.gov/portals/0/post_docs/publications/field-training-pro- Responses Percent gram/FTP/FTP-Vol1.pdf Less than 1 year 5 2.03% 4. Contra Costa County Office of the Sheriff. “In-Service Training.” https://www.cocosheriff.org/join-our-team/law-enforcement-train- 1-2 years 5 2.03% ing-center/in-service-training 3-4 years 5 2.03% 5. Manny Alvarez, Executive Director of the California Commission 5-9 years 26 10.57% on Peace Officer Standards and Training. Testimony to the Com- mission. February 11, 2021. 10-14 years 30 12.20% 15-19 years 38 15.45% 20 or more years 137 55.69% 13. What is your agency type? Responses Percent City 69 28.05% Sheriff 66 26.83% University 1 0.41% Community College 0 0% Marshal 0 0% District Attorney 17 6.91% Other 93 37.80% 14. How many officers are in your agency? Responses Percent Less than 20 17 6.91% 21-50 32 13.01% 51-100 38 15.45% More than 100 159 64.63% Issue Brief: California Law Enforcement Survey November 2021 (916)-445-2125 | LittleHoover@lhc.ca.gov 925 L Street, Suite 805, Sacramento, CA 95814 LITTLE HOOVER COMMISSION WWW.LHC.CA.GOV | 14