Law Enforcement Training: Identifying What Works for Officers and Communities

Law Enforcement Training: Identifying What Works for Officers and Communities Report #265 | November 2021 Milton Marks Commission on California State Government Organization and Economy www.lhc.ca.gov LITTLE HOOVER COMMISSION Dedicated to Promoting Economy Pedro Nava* and Efficiency in California State Chairman Government Sean Varner Vice Chairman The Little Hoover Commission, formally known as the Milton Dion Aroner Marks “Little Hoover” Commission on California State Government David Beier Organization and Economy, is an independent state oversight agency. Asm. Tasha Boerner Horvath By statute, the Commission is a bipartisan board composed of Cynthia Buiza five public members appointed by the governor, four public Asm. Phillip Chen members appointed by the Legislature, two senators and two Bill Emmerson assemblymembers. Sen. Dave Min Sen. Jim Nielsen In creating the Commission in 1962, the Legislature declared its Cathy Schwamberger purpose: Janna Sidley* ...to secure assistance for the Governor and itself in *Served on study subcommittee promoting economy, efficiency and improved services in the FORMER COMMISSIONERS transaction of the public business in the various departments, WHO SERVED DURING THE agencies and instrumentalities of the executive branch of STUDY the state government, and in making the operation of all Asm. Chad Mayes state departments, agencies and instrumentalities, and Asm. Bill Quirk all expenditures of public funds, more directly responsive to the wishes of the people as expressed by their elected Sen. Richard Roth representatives... COMMISSION STAFF Ethan Rarick The Commission fulfills this charge by listening to the public, consulting with the experts and conferring with the wise. In the Executive Director course of its investigations, the Commission typically empanels Tamar Foster advisory committees, conducts public hearings and visits government Deputy Executive Director operations in action. Krystal Beckham Ashley Hurley Its conclusions are submitted to the Governor and the Legislature Rachel Mattioli for their consideration. Recommendations often take the form of Sherry McAlister legislation, which the Commission supports through the legislative Tristan Stein process. Contacting the Commission All correspondence should be addressed to the Commission Office: Little Hoover Commission 925 L Street, Suite 805, Sacramento, CA 95814 (916) 445-2125 | LittleHoover@lhc.ca.gov This report is available from the Commission’s website at www.lhc.ca.gov. Table of Contents EXECUTIVE SUMMARY ......................................................................3 INTRODUCTION .................................................................................5 SECTION 1: WE’RE SPENDING MILLIONS ON LAW ENFORCEMENT TRAINING. FOR WHAT? ........................................6 California Legislates Many Aspects of Training ...........................................6 Existing POST Training Evaluation Fall Short ...............................................6 Research Can Help Demonstrate What Works, What Doesn’t ...................7 Incorporating Research to Improve California’s Law Enforcement Training ............................................................................................................9 Recommendations ........................................................................................11 SECTION 2: ASSESSING CALIFORNIA’S BASIC TRAINING ACADEMIES .......................................................................................11 Comparison to Other States ........................................................................13 California Must Understand What Works ..................................................13 Recommendation ..........................................................................................13 SECTION 3: RIGHTSIZING ENTRY LEVEL OFFICER TRAINING .....14 Entry Level Officer Training Must be Deployed Using a Thoughtful, Planned Approach .........................................................................................16 Recommendations ........................................................................................17 SECTION 4: INSUFFICIENT OPPORTUNITY FOR ROBUST, ONGOING EDUCATION ....................................................................17 Training Needs Vary, Requirements Are One-Size-Fits-All .......................18 Training Availability Often Determined by Department Size, Resources .......................................................................................................19 Options for Improvement ............................................................................20 California Must Develop Robust Ongoing Education For All Peace Officers ...........................................................................................................21 Recommendations ........................................................................................21 SECTION 5: ASSESSING POST LEADERSHIP ................................22 Composition of the POST Commission .......................................................22 Evaluating Distribution of Seats at the Table ............................................23 A Precedent for Change ................................................................................23 Creating a More Representative POST .......................................................24 Recommendation ..........................................................................................24 APPENDIX A: POST REGULAR BASIC COURSE CURRICULUM: MINIMUM INSTRUCTIONAL HOURS BY TOPIC ............................25 APPENDIX B: POST FIELD TRAINING PROGRAM TOPICS ...........27 NOTES ...............................................................................................28 LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 1 Letter from the Chair November 30, 2021 The Honorable Gavin Newsom Governor of California The Honorable Toni Atkins The Honorable Scott Wilk Speaker pro Tempore of the Senate Senate Minority Leader and members of the Senate The Honorable Anthony Rendon The Honorable Marie Waldron Speaker of the Assembly Assembly Minority Leader and members of the Assembly DEAR GOVERNOR AND MEMBERS OF THE LEGISLATURE: 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 training standards for California’s law enforcement officers. The following report details our findings and recommendations for helping the state better assess and improve law enforcement training. California spends millions of dollars on training each year and has certified thousands of hours of courses for police officers. However, the Commission learned that there is little evidence to demonstrate which types of training actually achieve intended goals and positively impact police behavior—and which do not. To strategically improve California’s approach to law enforcement training, the Commission recommends that the state empower POST to research and assess the success and relevancy of its training programs. This thoughtful evaluation of law enforcement training must focus on the structure and content of basic training and field training for entry level officers but should also include an assessment of the training offered to more seasoned officers. California must ensure that all officers—regardless of their role or tenure—are receiving adequate and appropriate training throughout the lifetime of their service. Lastly, the Commission calls on California to create a more representative POST —one that is more reflective and inclusive of both law enforcement officers and the communities they serve. The Commission respectfully submits this work and standards prepared to help you take on this challenge. Sincerely, Pedro Nava, Chair Little Hoover Commission 2 | LITTLE HOOVER COMMISSION Executive Summary Letter from the Chair California must assess and improve training for its enforcement training requirements and instead nearly 700 law enforcement agencies and more than provide POST funding to assess how well existing 87,000 full-time sworn and reserve peace officers. officer training is working in the field and adjust Such action would be an essential step toward training mandates as needed. meaningful law enforcement reform. Recommendation 2: POST should revise its In the wake of deadly police encounters involving process for evaluating law enforcement training to Black Americans and excessive use of force, include additional course certification criteria that lawmakers have looked to police training as one incorporate training outcomes. means to implement reform. In Fall 2020, the Little Recommendation 3: To encourage more rigorous Hoover Commission launched a study to examine the analysis of officer training programs, POST should role of the Commission on Peace Officer Standards establish a process to collect and secure data for and Training (POST) in shaping law enforcement research purposes in order to improve training. training standards for California’s peace officers. Recommendation 4: To foster collaboration with As part of its review, the Commission issued a series academic researchers, POST should establish a of Issue Briefs that provide critical context and permanent academic review board to ensure training insight into law enforcement training in California standards are aligned with the latest scientific without making policy recommendations. The first, research and advise POST on how to incorporate California Law Enforcement Survey, details findings research findings into new and existing standards from the Commission’s anonymous survey of active- and training. duty California peace officers about the training they receive. The second, Comparing Law Enforcement Assessing Academies Basic Training Academies, reviews various models for law enforcement basic training academies across the No overall assessment of the state’s 41 basic training nation and within California. academies has been conducted to compare how effective each model is in preparing individuals to In this report, the Commission identifies ways become peace officers. California must learn more in which the state can address current training about the structure of these academies to determine deficiencies and enhance the training that officers what kind of training works best for our officers, our receive. communities, and our state. Incorporating Research Recommendation 5: Lawmakers should provide funding for POST to compare and evaluate California spends millions of dollars on law California’s 41 basic training academies and identify enforcement training each year yet does not require best practices. POST should report its findings to the serious or thorough evaluation of how that training Legislature in a report no later than one year after affects officers’ behavior on the job. The state must funding is appropriated for this purpose. take greater action to incorporate academic research into training curriculum to help identify effective practices and highlight deficiencies. Recommendation 1: Lawmakers should temporarily refrain from amending or adding new law LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 3 requirements to determine whether curricula remain Rightsizing Entry Level Officer relevant and necessary and make adjustments as Training needed. The early training officers receive does not always Recommendation 10: POST should identify and line up with knowledge and skills they need in the implement ways to improve officer access to field. California should reassess its approach to entry continuing education. level training to promote knowledge retention and ensure that curriculum introduced to new officers Creating a More best supports the needs of their duties and functions. Representative POST Recommendation 6: POST should review and With the power to influence training standards for evaluate the current basic academy training a profession that requires a high level of public curriculum to, among other things, review the confidence, the composition of the POST Commission effectiveness and relevancy of courses for today’s matters. While maintaining a majority of peace community needs and identify gaps in foundational officers who can speak to the often-changing realities training necessary to prepare new officers. POST of the job, the balance of the POST Commission must should redesign the regular basic course based on its shift to better incorporate a variety of civilian voices. findings. Recommendation 11: Lawmakers should modify the Recommendation 7: POST should assess and POST Commission to add additional public members evaluate the content and structure of the field and ensure broad representation that includes training program to determine how it could be more members of vulnerable communities, health and complimentary to the basic academy program. mental health professionals who serve vulnerable communities, and experts in adult education and Developing Robust Ongoing scientific research. Education California falls short of ensuring that officers receive adequate and appropriate training throughout the lifetime of their service. The state must rethink its current approach to ongoing training and create opportunities to bolster learning for officers throughout their careers – not just in the early years. Recommendation 8: POST should establish a new advanced academy experience, required for officers with between two to five years of experience, to reinforce entry level training and incorporate the more advanced concepts currently embedded in the basic academy. Recommendation 9: POST should assess the existing continuing professional training 4 | LITTLE HOOVER COMMISSION Introduction The state plays a critical role in setting the We learned that peace officer training can be a minimum training standards for the nearly 700 law powerful tool for setting the tone for an officer’s enforcement agencies and more than 87,000 full- career and shaping how individual officers view time sworn and reserve peace officers in California.1 their role. Yet, despite ongoing reliance on law This function, among others, is carried out by the enforcement training as an instrument of change, California Commission on Peace Officer Standards we found very little evidence to demonstrate which and Training, or POST. types of training actually achieve intended goals and positively impact police behavior – and which do not. We launched this review in fall 2020 to examine POST’s role and review existing training requirements Assessing and improving training for the state’s of California peace officers. At the time, momentum peace officers is an essential step toward meaningful for police reform was building throughout the state reform. Doing so will require a financial investment. and across the country in the wake of devastating But the cost of inaction is too great. It is a cost that and deadly police encounters involving Black officers will pay when they are faced with a split- Americans and excessive use of force. As in the second decision for which they are unprepared, that past, lawmakers turned to police training as one communities will pay when an officer makes the instrument of reform – a tool to shape evolving wrong decision, that departments will pay in legal values and expectations for the profession. bills and settlement costs. Additional Resources on Police Training The Commission recently produced two Issue Briefs related to this study on California law enforcement training. The first, Issue Brief: California Law Enforcement Survey, presents findings from a May 2021 survey of active-duty peace officers about the training they receive. More than 300 officers responded to the survey, affirming the value of the training they receive and identifying pressing challenges that could be addressed to improve their training experience. The second, Issue Brief: Comparing Law Enforcement Basic Training Academies, presents a nationwide comparison of law enforcement basic training academy models using data gathered from a survey of state law enforcement leaders. This Brief also presents a preliminary examination of California’s basic training academies to examine differences in training hours and formats, attendance, and passing and hiring rates. Both Issue Briefs are available on the Commission’s website at www.lhc.ca.gov/report-library. LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 5 This model leaves little room for thoughtful priority SECTION 1: WE’RE SPENDING setting and evaluation. The Legislature does not MILLIONS ON LAW require after-the fact assessment of training, nor ENFORCEMENT TRAINING. does it provide POST the resources to do so. Thus, FOR WHAT? the state fails to look back and consider whether the training addressed the problems it intended to solve, California spends millions on law enforcement whether it resulted in any unintended consequences training each year and has certified thousands of in officer behavior, or if it remains relevant for the courses for police officers. Yet, the state does not realities of the job today. require serious or thorough evaluation of how that EXISTING POST TRAINING EVALUATION training affects officer behavior on the job. Without FALL SHORT research and assessment, it is impossible to know POST certifies all 4,600 law enforcement training that this investment has produced, or is likely to courses within its portfolio, including courses in produce, the results Californians want to see. the basic training program, mandated in-service CALIFORNIA LEGISLATES MANY ASPECTS officer training, as well as optional continuing OF TRAINING education courses for officers. Yet, neither the The Legislature often sets the topics of law course certification process nor the regular course enforcement training and requires a certain number assessments measure the effectiveness of officer of instructional hours but has yet to require an training. assessment of how training impacts officer behavior on the job. California spends millions Often, this legislation is intended to bring attention on law enforcement training to laws already in place or to respond to accounts each year and has certified in the media or events highlighted by stakeholders or public interest groups.2 Over the last decade, thousands of courses for lawmakers introduced approximately 65 bills that police officers. Yet, the state addressed peace officer training, more than half does not require serious or of which became law. Among their changes, these bills required pre-employment training in principled thorough evaluation of how policing, mental health, domestic violence, and gun that training affects officer violence restraining orders; added hours to on- the-job training for current officers; and mandated behavior on the job. specialized training for maritime, campus, or tribal officers. The criteria for evaluating law enforcement courses In recent years, the pace with which lawmakers have for certification are delineated in the California weighed in has significantly increased. During the Code of Regulations and generally require POST to five-year period between 2015-2020, lawmakers consider what the course will teach and whether it introduced an average of more than nine bills related will fulfill an unmet training need, how the students to officer training each year – almost double the will learn, and how the course will be administered.3 average between 2010 and 2014. For course certification, POST reviews course administrative information, instructors, outlines, 6 | LITTLE HOOVER COMMISSION hourly distribution schedule, safety policy, student to proxy for the quality and relevancy of the training to instructor ratio, and checks that the course material the job. is current and complies with state laws. Every two Without more rigorous evaluation of the impacts years, POST requires presenters to re-submit the of law enforcement training on officer behavior, course content for evaluation in order to maintain California risks inadvertently prolongating use certification.4 of training techniques that are useless or, even The current certification process, however, does worse, erode community trust and result in other not include important questions that could help law unintended consequences. enforcement officials understand what outcomes the RESEARCH CAN HELP DEMONSTRATE WHAT training might produce or how it may impact officer WORKS, WHAT DOESN’T behavior. For example, POST’s certification process In the past, little rigorous research was available does not consider: to say with certainty how law enforcement training ◊ Was the training developed based on or informed translates into actions in the field. Too often training by academic research and does it align with is developed like a craft, based on intuition, best research evidence? practices from colleagues, or an officer’s own individual experience. It is not generally based on ◊ Will the training teach skills that will prevent and research evidence, nor is it tested to see how it reduce policing harm in marginalized groups? influences officer behavior on the job. A growing ◊ How does this training align – or not – with what body of academic work is beginning to look at ways officers actually do on-the-job and how will it be to incorporate research findings into police training useful in their day-to-day work? techniques and assess the outcomes of training.5 ◊ Is the training current and fresh or does it repeat California should take advantage of that work. lessons and examples officers were exposed to in prior years? Research could help identify effective training practices. Most of this work has been done in ◊ How will the training improve officer job partnership with research institutions to design performance? scientific studies, collect necessary data, and POST also tends to evaluate existing courses based systematically evaluate findings, often for specific on the number of training hours, or the course training programs. Some examples include: outcomes from an instructor’s point-of-view – such A team of researchers from across the country as whether students retained the information they partnered with the Seattle Police Department in 2018 were presented or if they were satisfied with the to evaluate a procedural justice program designed to course. These evaluations fall short in helping POST slow police officers’ thought processes during citizen and others understand if the training is effective in encounters. Researchers found that officers who changing officer behavior or can support desired participated in the training were less likely to resolve policy outcomes, such as police reform or crime incidents with arrests or use of force.6 More recently, reduction. For example, monitoring the hours of a team of researchers evaluated implementation training only ensures that officers are physically – but of procedural justice training in the Chicago Police not cognitively – present for the lessons. Similarly, Department as a strategy for reducing negative tracking student satisfaction may measure how police interactions with the communities they serve. engaged participants are in a class, but is not a good Researchers found that the training reduced civilian LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 7 complaints and use of force and suggested this sort from 300 officers over a 12-month period and coding of training is viable for decreasing harmful policing their behavior while interacting with community practices.7 members. The goal is to understand whether the training changed behavior in the field, which type Researchers with the University of Cincinnati of training was more effective, and how long the partnered with the Louisville Metro Police training effect lasted.10 Department in 2019 to test the impact of a new de-escalation program which teaches officers to Research can also highlight training deficiencies. think about using time, space, dialogue, and critical Research is equally valuable in validating training thinking – not force – to diffuse situations. Using that is not useful or that leads to unintended surveys and a randomized control trial, researchers consequences. Some examples: found officers self-reported a reduction in use of Though de-escalation training is widely promoted as force by 28 percent, a reduction in citizen injuries by a way to improve police interactions with the public, 26 percent and a reduction in officer injuries by 36 with the exception of the study noted above, there is percent.8 Supplemental research of the de-escalation little research linking de-escalation training to police program conducted in 2020 found that receptivity to officer behavior. Researchers in 2020 conducted a the training and officer views on police use of force multidisciplinary literature review of 64 de-escalation varied by officer characteristics and that supervisor training evaluations conducted over a 40-year period, activities to reinforce de-escalation principles primarily in the fields of nursing and psychiatry. impacted officer attitudes on use of force.9 Researchers found that de-escalation trainings lead to slight-to-moderate individual and organizational Without more rigorous improvements but noted that the quality of nearly evaluation of the impacts all of these evaluations was questionable and few included evidence on the impact of de-escalation of law enforcement training for police.11 training on officer behavior, Implicit bias training is touted as a way to reduce California risks inadvertently disparities in police enforcement activities, but there prolongating use of training is still little scientific evaluation of these training programs on police actions. In one study, a team techniques that are useless or, of researchers partnered with the New York City even worse, erode community Police Department to evaluate the effects of a trust and result in other one-day in-service implicit bias training program on patrol officers. Researchers found that 70 unintended consequences. percent of officers initially regarded the training as beneficial, and two-thirds reported learning new Researchers at the University of Washington are skills they expected to use on-the-job. Follow-up currently working with the Sacramento Police surveys conducted between two to 13 months after Department to evaluate and compare the efficacy of the training found that 42 percent of officers said traditional classroom-based implicit bias training with they had not applied the training in their duties an interactive simulation-based bias training. For this over the last month and only a quarter reported study, researchers are tracking body camera footage frequently attempting to use the skills. Researchers 8 | LITTLE HOOVER COMMISSION concluded that while the training increased officers’ interactions with the public.16 understanding of what implicit bias is, it did little to ◊ Collecting additional data on police behavior impact enforcement behaviors.12 would be both expensive and time consuming. And without the assistance of artificial intelligence Some researchers also suggest that use of force technology to automate the process, behavior training is overly geared toward mitigating threats analysis of behavioral data likely would have to to officers. They suggest training scenarios over- be conducted through labor-intensive manual represent situations that are potentially fatal for reviews.17 officers and possibly create a distorted perception of risk that may give rise to excessive force in the ◊ Police agencies may be resistant to collecting field. Drawing on ethnographic observations and additional data for fear that sharing findings with interviews in three U.S. police departments, one the public could increase a department’s risk of researcher found that police are both informally litigation. One concern would be that behaviors and formally socialized to perceive police work as recorded in training were used against officers dangerous and these threats – and the need for when something bad happened in the field.18 officer safety – are emphasized in officer training. ◊ And finally, though there are many academic The researcher observed that use-of-force training researchers across the country who focus on exercises emphasize various scenarios where criminal justice practices, few academics focus officers are confronted with armed suspects or specifically on law enforcement training and possible threats of violence and must decide whether whether it produces discernable change in an or not to engage with force.13 Reform advocates officer’s behavior.19 suggest that training emphasis on low probability/ INCORPORATING RESEARCH TO IMPROVE high-stakes scenarios may actually give officers a CALIFORNIA’S LAW ENFORCEMENT disproportionate sense that they must prepare for TRAINING violence and can skew officers behavior toward use POST must be given resources to assess the success force.14 and relevancy of existing training programs. POST must also augment its process for evaluating Facilitating research on training effectiveness law enforcement training to include metrics that will require overcoming a number of barriers. evaluate training outcomes. The focus of course Though data on police behavior while in training evaluations must shift away from hours in training and on the job is critical for analysis, state law only or officer satisfaction to better understanding requires limited public reporting of law enforcement training outcomes and impacts to officer actions and data. Since 2017, agencies have been required to behavior in the field. collect and report data on use of force incidents that result in serious bodily injury, death, or involve the More research is needed, but POST is well-positioned discharge of a firearm to the Department of Justice.15 to help develop a body of research around police training effectiveness. To do this, it must foster and Several barriers limit the practicality of conducting facilitate partnerships between academic researchers more outcome-based research: and police departments. To date, POST’s work with ◊ Use of force data currently collected by the academic researchers has largely been project based. Department of Justice does not represent all While POST routinely brings in non-law enforcement use of force incidents, nor does it capture lesser experts, including researchers, to help create training behaviors that make up the majority of officers curriculum, student workbooks, and guidelines on LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 9 Wide Support for Broader Evaluation of Existing Training Programs After decades of legislative and regulatory build-up and state investment, both peace officers and reform advocates agree that an evaluation of officer training is long overdue in order to better understand how training has actually impacted officer performance in the real world. Without this kind of assessment, it is impossible to know with certainty how driving training has improved, or if courses intended to reduce an officer’s bias or improve communication with the public actually produce those results. Though cops generally perceive existing training to be effective,20 some acknowledged that there are gaps between what officers are taught and what they experience on the job. Indeed, the majority of officers we surveyed (almost 70 percent) agreed that POST should incorporate academic research on training effectiveness to its standards and curricula, and even more (80 percent) agreed POST needed to do more to improve training by monitoring training outcomes and adjusting standards and curricula accordingly. Some law enforcement officials further explained that it would be helpful to evaluate how training prepares them for the realities of the job and better understand how it influences their behavior on the streets. “As a state, we are not going back and looking at the results [of training],” Los Angeles Police Department Training and Education Director Dr. Luann Pannell told Commissioners. She said we don’t ask, “why was this [training] implemented, did we reach our goal, what are our goals now?”21 Community and police reform advocates, too, support evaluation of peace officer training as a way to measure change in policing and demonstrate that training actually addresses priority issues. They observe that training is often seen as a solution to various problems identified in law enforcement, but say that many times, the problems persist despite investment in training. When the efficacy and effectiveness of those trainings remains unmeasured and unknown, there can be little trust that change actually occurred or that the training actually made a difference.22 Hans Menos with the Center for Policing Equity explained without evaluation we cannot know whether training leaves officers unprepared to meet the needs of the communities in which they serve. He observed that significant and ongoing investment in training, without knowing the results, can lead to continued harm done to communities, delegitimization of police, and misallocation of funds that could be spent on more effective training.23 specific topics,24 these efforts will not result in the nation – on ways to inform training through rigorous, type of global and systematic review that is needed. scientific research. Findings from these research POST must be empowered to lead efforts that drive activities should be used to inform state training training reform and do more to regularly engage with standards and curricula and shared with lawmakers academic researchers – in California and across the to drive policy changes. 10 | LITTLE HOOVER COMMISSION No formal, permanent body exists to connect Recommendation 2: POST should revise its POST with researchers on an ongoing basis. The process for evaluating law enforcement training to organization’s only permanent advisory body is include additional course certification criteria that comprised of rank-and-file law enforcement officials incorporates training outcomes. Additionally, POST and is charged with advising the commission should require presenters to develop evaluation on contemporary and evolving issues in law plans for all POST-certified courses. These evaluation enforcement.25 POST should establish a permanent plans should incorporate training outcomes and advisory body to continually scan research for include guidelines for how instructors will measure evidence about which types of training are most outcomes. or least effective and advise commissioners and Recommendation 3: To encourage more rigorous policymakers on any necessary updates to training analysis of officer training programs, POST should requirements, standards, or curriculum. This establish a process to collect and secure data for advisory body should incorporate research in police research purposes in order to improve training. This science, but also in other relevant fields such as data should largely be kept confidential and made psychology, communications, medicine, education, available only to POST or research institutions for and economics. analysis. Californians deserve to know that investments made Recommendation 4: To foster collaboration with to officers in their communities will result in the academic researchers, POST should establish a changes they want to see. And officers deserve to permanent academic review board to: receive training that will help them carry out their responsibilities effectively, and with minimal harm to ◊ Regularly review and update POST’s training themselves and the communities in which they serve. standards and curriculum to ensure alignment with the latest scientific research; Recommendation 1: Lawmakers should temporarily refrain from amending or adding new law ◊ Survey current research on police training and enforcement training requirements and instead other relevant topics and advise POST on how provide POST funding to: to incorporate findings into new and existing standards and training; ◊ Partner with academic researchers to conduct ◊ Advise POST on strategies to define and test an assessment of existing officer training training outcomes; and, requirements and determine how well it is working for officers in the field. Report findings to ◊ Advise POST on procedures to address data the Legislature within two years. confidentiality issues that may arise from sharing data for research purposes. ◊ Adjust training mandates as needed based on its findings, including reducing or eliminating training SECTION 2: ASSESSING because it is not effective or no longer meets the CALIFORNIA’S BASIC needs of the workforce today. TRAINING ACADEMIES ◊ Continually assess new mandated training requirements and report findings to the Forty-one basic training academies are currently Legislature. certified to operate in California and provide all of the curriculum and testing necessary for an individual to LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 11 become a law enforcement officer in the state. POST for law enforcement. Some emphasized the benefit certifies each of these academies to ensure their of this type of training for practicing how to de- curriculum meets the minimum content and hourly escalate high-stress situations or problem solve requirement for training and testing in 41 separate and determine when it is or is not appropriate to instructional topics, or “learning domains,” and use force. About 20 percent said that non-stress provides oversight through auditing enforcement. academies are just as effective, or more effective than, stress-based academies in preparing officers As outlined in Issue Brief: Comparing Law Enforcement for the realities of the job. Some said too great an Basic Training Academies, released by the Commission emphasis on high-stress scenarios during basic earlier this year, the nature of the academies training does not prepare officers for the day-to- differs in substantial ways.26 For example, most are day realities of the job, such as interacting with administered by community colleges, while others community.27 Chiefs testified they would like to see are operated by a single law enforcement agency or training structures that are less militaristic and more even, in one case, as a regional consortium. Other conducive for higher learning.28 differences include the structure and amount of instruction offered, the experience of the instructors, Training Delivery. Academies differ in the way the total size and rates of graduation, and the rates training is delivered or in their instructional emphasis at which graduates are hired. beyond the minimum POST requirements. For example, some academies deliver training through Yet, despite these many differences among lengthy classroom sessions and long blocks of the state’s basic training academies, no overall repetitive skills building, often one subject at a assessment has been conducted to compare how time. Research suggests this siloed approach is less effective each model is in preparing individuals to effective than a more holistic approach that staggers become peace officers. A comprehensive evaluation and integrates skills building throughout the training is overdue. experience. Academies also vary in the amount they rely on lecture format learning, which has been Such an evaluation could compare many aspects of found to be less effective for developing certain the organization and operation of academies. Three types of skills such as critical thinking and problem examples of the many kinds of issues that would solving.29 benefit from rigorous analysis, include: Experience and Quality of Instructors. POST sets Stress vs. Non-Stress Training. Some academies certain requirements for basic training instructors use high-stress or paramilitary style training that and offers courses for them.30 Yet despite these emphasizes reality-based scenarios and can be standards, the experience and quality of instructors important for trainees to practice what it will be like can vary across academies. Some instructors are to interact in communities under pressure situations. retired law enforcement officers, while others are Other academies promote low-stress training, which actively involved in the profession as sworn officers may resemble a more academic, classroom-based assigned temporarily to an academy. Others, such environment. as off-duty sworn officers, may work as part-time Both models have proponents within the law academy instructors. Academies may also bring enforcement community: Most officers who in individuals without prior experience in law responded to the Commission’s survey said that enforcement to serve as instructors for components stress-based academies provide essential training of the curriculum. Some instructors may hold 12 | LITTLE HOOVER COMMISSION advanced degrees, while others are certified as Basic Training Academies, released earlier this year, experts through completion of specialized training or included a preliminary comparison of California’s experience in their field. academy structure to that of other states. But there has been no more thorough analysis to consider Law enforcement officials told the Commission an how California’s system compares to that of other instructor’s background and approach to teaching states and whether there are lessons to be learned can influence how receptive officers are to the regarding the effectiveness of one model over others. training. For example, they explained long-retired officers may be too far removed from the current Washington State, at the direction of its Legislature, realities of the profession or may be dismissive of in 2019 commissioned an evaluation of its single new techniques that were not in practice during Basic Law Enforcement Academy. This evaluation their tenure. Officers said these instructors can then included a national scan of basic law enforcement undermine the effectiveness of lessons.31 Some training and considered the feasibility of introducing reflected that not all instructors regularly update alternative academy models into Washington’s their curriculum so that students may receive the training scheme.33 A similar evaluation of California’s same content year-after-year despite changes to the basic training model could help guide POST in complexity of the job.32 future decisions about the need to certify additional academies or to consider whether redundancies are created by operating the existing academies. Yet, despite these many CALIFORNIA MUST UNDERSTAND WHAT differences among the state’s WORKS basic training academies, The existing variation in academies may or may not no overall assessment has be beneficial. The Commission heard from many officers that there needs to be greater consistency been conducted to compare in training,34 but it is also possible that different law how effective each model enforcement agencies – with varying sizes, locations, and missions – benefit from different training is in preparing individuals methods. For now, the Commission takes no position to become peace officers. A on whether greater uniformity of training is good or comprehensive evaluation is bad. But we are strong advocates that the state must learn more. The variation among California’s existing overdue. academies provides a natural research experiment – and we must take advantage of this opportunity In each of these three areas – and in many others – a to compare and measure different types of law rigorous evaluation of academies and a comparison enforcement training, and decide what works best of their results is needed. Law enforcement leaders, for our officers, our communities, and our state. rank-and-file officers, and California’s civilians all Recommendation 5: Lawmakers should provide deserve to know what kind of training works best, funding for POST to compare and evaluate and how it ultimately affects officer behavior on the California’s 41 basic training academies. In this job. evaluation, POST should consider how well each COMPARISON TO OTHER STATES is preparing recruits and identify, if possible, any Our Issue Brief entitled Comparing Law Enforcement best practices given the different academy models LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 13 currently operating in the state. In conducting this research POST should also consider whether Training Focus: Basic and California needs 41 different academies or if there Field Training are opportunities for consolidation. POST should report its findings to the Legislature in a report no Between the basic academy and field later than one year after funding is appropriated for training programs, California mandates a this purpose. minimum of about six and a half months of training to become a peace officer: SECTION 3: RIGHTSIZING ENTRY LEVEL OFFICER Basic Academy: The basic academy TRAINING program covers subjects in 41 different learning domains that span the Front-line officers – those working in the field requirements of the profession: weapons, in our communities – are often young and fairly defensive tactics, and use of force; general inexperienced. Many come to the profession operations; vehicle operations; victims and straight out of high school. Once on the job, these crimes operations; community policing and new officers often have the most latitude and least communications; self-improvement; and supervision during their day-to-day work. Many also legal education. Officers must complete a have had the least time and experience to develop minimum number of instructional hours and hone their skillset. Because this employment in each domain and pass required tests to model places so much responsibility on new graduate from the basic academy and enter officers, entry level training is critically important into the field training program, as shown in to provide foundational skills and prepare recruits Appendix A.36 for the realities and obligations of the job. Given Field Training: The field training program the high-level of responsibility recruits receive once offers localized training to recruits, they become full-fledged officers, equipped with a consisting of one-on-one training and badge and a firearm, it is critical that this training mentoring with a Field Training Officer. successfully convey the knowledge, skills, and POST provides guidelines for 18 core abilities appropriate for the job. competencies to be covered in field training. While many officers say their entry level training is Topics include ethics, traffic, report writing, relevant to their day-to-day work,35 some suggest community relations, and policing in the that this early training doesn’t always line up with community, among others, as shown in the knowledge and skills new officers need. Officers Appendix B. New officers must successfully described an at-times rigid training scheme that locks complete this probationary training before in training on certain topics, in specified amounts of they can work alone as uniformed officers.37 time. Challenges compound as lawmakers and others add new topics into the required basic curriculum, cramming existing curriculum into an already limited It is time California reassess how it deploys entry training scheme. One official likened this learning level officer training. The structure and content of approach to drinking from the fire hose, where the both the basic training and field training programs pace and volume of subjects covered has accelerated should be reevaluated to ensure that all new officers to the point that knowledge retention becomes a are given sufficient time and exposure to develop challenge. 14 | LITTLE HOOVER COMMISSION and practice the basic skills necessary for the job. and social work professionals, so officers are better Our work identified a number of challenges to be prepared when interacting with at-risk members in addressed: the community.41 Insufficient time in the academy to adequately The flow of entry level training could be cover topics critical to job. Today, most of the basic improved. Field experience can help officers absorb training curriculum focuses on teaching officers the and apply lessons from the academy and reinforce “nuts and bolts” of the profession – skills like how their training. But in California, entry level training to write a report, drive a car, shoot a firearm. While generally is not structured to allow officers to go appropriate and necessary basic skills for the job, back and forth between the classroom and field officers said there is not enough time to develop environment. Officers said this gap can make it other softer skills necessary for day-to-day police difficult, at times, for a recruit to understand the work. One officer explained, basic training does a breadth of what they are expected to learn at the good job at teaching a recruit to hit a target, but academy without having the benefit of exposure to that a recruit’s decision to use that force is equally real world scenarios. important. Key subjects may be mentioned in the Some suggested law enforcement training could academy, but more than half of surveyed officers improve under a different model that blends field identified topics that could benefit from additional work and classroom education, like nursing programs emphasis, such as communication, problem solving, that interweave internships and clinical rotations decision-making, critical thinking, officer wellness, over a period of up to two years.42 This approach de-escalation, use of force, media relations. Police would allow trainees to experience in and out phases chiefs reiterated these concerns, and also called for of the academy that move from the classroom to the more training in several additional areas, including field and back and provide context for some of the interpersonal communications, crisis intervention, more complex issues raised during the academy.43 and professionalism.38 Early training in this community context could help Academy curriculum sometimes outdated. Some officers better relate to and understand challenges officers expressed frustration that the basic functions facing the communities in which they will serve. and duties required of the job have changed The Los Angeles Police Department’s Basic Training immensely over the years, requiring front-line Academy, for example, brings all academy recruits officers to adapt to evolving technologies, changing back into the classroom setting for an additional laws, new cultural norms, and complex societal issues 80-hour, or two-week training experience at the such as homelessness, drug and alcohol abuse, and a end of their probationary period, at about 11 variety of other health and mental health issues. Yet, months on the job. The first week goes beyond the the training they receive has not kept pace with these minimum required basic curriculum to address a changes.39 Police chiefs specifically observed that range of topics including fair and impartial policing, often the more rigid requirements set in statute can purposeful communication, investigations, care of lag behind contemporary needs and do not include victims and witnesses, procedural justice, use of problem solving, communications, and community force, community relationship development, and policing philosophy – topics that could help officers building public trust. During this period, officers are respond to various complex situations.40 Some asked to consider a number of important issues, officers suggested the academy experience should now informed by their experience in the field: how include training and instruction with mental health LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 15 their bias works and how they can mitigate negative number of required teaching hours.47 Some in the outcomes, how empathy in policing improves safety profession suggest that far more time is needed, for officers and the public, what procedural justice including the president of the Peace Officers looks like in a real-world experience, how officers Research Association of California, who testified that can engage in the community to make a difference the academy should expand to a full two-years in in peoples’ lives. The second week is devoted to order to include more academic instruction.48 exposing recruits to additional mental health intervention training – something that previously new ...while POST has adjusted officers had to wait years to undergo.44 the basic academy curriculum More time is needed to practice learned skills. to incorporate additional Some officers commented that field training should be longer in order to give recruits more opportunity content, it is not clear that to practice and reinforce skills in a hands-on learning equal consideration has been environment.45 Some chiefs envisioned the field given to how much time is training program bolstered by more internship programs that expose recruits to social workers, required to appropriately mental health professionals, staff in the district address these needs or attorney’s office and public defender’s office, and other professional staff with whom they would whether all of the curriculum interact in the community. This exposure, they said, remains relevant. would create a more holistic understanding of the criminal justice system and the community in which a new officer would work.46 Basic training should start with the basics. Instead of cramming an ever-changing list of required topics ENTRY LEVEL OFFICER TRAINING MUST into an allotted set of hours, POST should be given BE DEPLOYED USING A THOUGHTFUL, authority to assess and restructure the content of the PLANNED APPROACH basic academy to ensure that appropriate emphasis To promote knowledge retention and ensure that is placed on the skills new officers will need, when curriculum introduced to new officers best supports they need them. While the Commission does not take the needs of their duties and functions, California a position on how much additional time is needed should rethink its approach to entry level training. for the basic academy and in what specific topics – Officer trainees need to be given appropriate time that determination requires rigorous examination to learn, absorb, and practice the skills necessary to by POST, along with academic experts and others serve and protect their communities. – it is clear that state standards are not in line with It is clear that what police officers need to know has the needs of the profession. Similarly, POST should evolved over time. And while POST has adjusted the reconsider the flow of entry level training to ensure basic academy curriculum to incorporate additional that officers have sufficient time and opportunity to content, it is not clear that equal consideration practice those skills most critical to the job before has been given to how much time is required to being asked to take on the full responsibilities of appropriately address these needs or whether all the job. Again, a rigorous evaluation – and potential of the curriculum remains relevant. Currently, all of course correction – are needed. California’s basic academies exceed the minimum 16 | LITTLE HOOVER COMMISSION Recommendation 6: POST should review and Recommendation 7: POST should assess and evaluate the current basic academy training evaluate the content and structure of the field curriculum to: training program to determine how it could be more complimentary to the basic academy program. POST ◊ Review the effectiveness and relevancy of courses should consider expanding the field training program for today’s community needs. as well as segmenting supervised field work with ◊ Identify concepts that are obsolete or, conversely, academy curriculum. more appropriate for experienced officers. These SECTION 4: INSUFFICIENT should be removed from the regular basic course to allow more time to reinforce the basic skills and OPPORTUNITY FOR ROBUST, concepts that are fundamental for all officers. ONGOING EDUCATION ◊ Identify gaps in foundational training necessary to prepare new officers. These topics should be In-service training offers an avenue for officers to incorporated into or expanded upon in regular stay current with ever-evolving laws, policies, trends, basic course. and societal demands, as well as practice certain skills specific to their role or “perishable” skills that ◊ Based on findings, redesign the regular basic are less durable and require consistent repetition course to ensure recruits receive appropriate and to maintain proficiency. However, California effective training before their probationary period requires – and invests in – few ongoing educational ends. The hours allotted to the basic academy opportunities for peace officers throughout their program and the scheduling of the academy careers. program should reflect these training needs. California Requires a Patchwork of Continuing Officer Training POST regulations require all officers to complete a continuing professional training program every two years. Currently, this consists of a minimum of 24 hours of POST-certified training, including 12 hours of psychomotor training (which includes tactical firearms, driver training and awareness, and arrest and control), two hours of communications training, and four hours of use of force training.49 Both POST and the Legislature require some additional ongoing, or in-service, training for career officers. For example, lawmakers require vehicle high speed pursuit training for all officers every year, arrest and firearms training every three years, and racial profiling training every five years.50 Certain officers also are required to complete additional training based on their position or function.51 For example, POST requires all new Sergeants to complete an 80-hour POST supervisory course within one year of their appointment, while new Lieutenants and Commanders must complete a 120-hour POST management course. All school district and community college officers are required by state law to attend a 40-hour POST campus law enforcement course within two years of their appointment.52 LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 17 POST regulations require all officers to complete – some noting that new officers need a different a continuing professional training program every sort of support than their more seasoned two years. To supplement these requirements, colleagues. One officer explained that it can take POST’s course catalogue includes approximately around five years for an officer to be proficient 4,600 certified courses which officers may enroll in and capable of approaching the calls that come voluntarily.53 Many officers avail themselves of these in and understanding how to approach different courses and annually complete significantly more situations.57 Yet, California’s current training regimen training than required. Indeed, POST estimates peace emphasizes just the first one to two years of officers average 88 hours of training every two-year apprenticeship training and does not support new cycle, compared to the required 24-hour minimum.54 officers through this journeyman level. This demand is not surprising given feedback the California must rethink Commission received from California officers. Many view in-service training as an avenue for lifelong its current approach to learning and said they would welcome additional ongoing training and refresher courses on topics that may have been touched on during their entry level training, such as create opportunities to critical thinking skills, principled policing, procedural bolster learning for officers justice, communication, de-escalation, crisis throughout their careers – not intervention and culture as well as officer wellness and resiliency.55 Officers also said they would benefit just in the early years. from in-depth courses on new topics as a way to stay up-to-date on trends in the profession, such “We put our youngest and newest officers out on as updates on case law and legislative changes that the front lines,” Dr. Luann Pannell, Director of Police impact the criminal justice system.56 Training and Education at the Los Angeles Police California must rethink its current approach to Department told Commissioners. She explained that ongoing training and create opportunities to bolster in most departments, frontline officers have to put learning for officers throughout their careers – not in time and “earn” advanced training opportunities just in the early years. As it stands, there has been even though they are responsible for doing most of little evaluation to determine if courses focus on the frontline work. A better paradigm would be to topically appropriate issues and in areas officers figure out how to support officers through their first most need. Worse, the state’s current approach to five years on the job and then institute mandatory continuing education can result in training inequities milestones throughout an officer’s career.58 across law enforcement departments and regions Additionally, ongoing training requirements generally of the state, can create cultural challenges within are standardized and do not account for an officer’s individual police departments, and can leave veteran experience, time on the job, or role. For example, officers underprepared for the realities of the job. there are no set expectations for what officers should TRAINING NEEDS VARY, REQUIREMENTS know once they reach five – or seven or 10 – years ARE ONE-SIZE-FITS-ALL of service, nor expectations that officers should be Law enforcement experts emphasized the fluent in defined skillsets or have achieved certain importance of training early in officers’ careers proficiencies after a set amount of time on the job.59 18 | LITTLE HOOVER COMMISSION Nearly Two-thirds of California Law Enforcement Agencies Employ Less Than 50 Full-time Sworn Officers California law enforcement agencies by the number of full-time sworn officers they employ 100 Agencies | 50 - 99 Officers 85 Agencies | 100 - 299 Officers 13 Agencies | 300 - 499 Officers 12 Agencies | 500 - 999 Officers 6 Agencies | 1,000 - 1,999 Officers 3 Agencies | 2,000 - 2,999 Officers 147 Agencies | 20 - 49 Officers 1 Agency | 6,000 - 9,000 Officers 2 Agencies | Over 9,000 Officers 99 Agencies | 1 - 9 Officers 129 Agencies | 10 - 19 Officers Note: An additional 11 law enforcement agencies employ only dispatch or reserve officers, but not full-time sworn officers. Source: Manny Alvarez, Executive Director, Commission on Peace Officer Standards and Training. June 23, 2021. Personal communication with Commission staff. The lack of such a structured training scheme can availability of educational opportunities often be problematic for various reasons. When, for depends on a department’s resources. With limited example, new concepts or expectations are built state funds available to reimburse departments for into basic training academies, veteran officers may training, some departments only provide the two- not be exposed to those same concepts unless their year mandated minimum. department offers similar supplemental training. Officers said a department’s size or resources can Officers may be enrolled same ongoing refresher dramatically impact how it prioritizes training. courses year after year despite some already having Departments in higher socio-economic communities a mastery of the skills. Officers may also be lumped are more likely to have adequately funded police into the same courses, even though some may have departments that can choose to prioritize training, job duties that may require specialized or advanced while those operating in less resourced communities training on certain topics. Patrol officers, for have little room to budget beyond minimum example, likely need different ongoing training than requirements. investigative officers. TRAINING AVAILABILITY OFTEN Smaller operations – which account for most DETERMINED BY DEPARTMENT SIZE, departments in the state – may lack in-house training RESOURCES resources such as instructors, classroom facilities, or Once officers complete mandated training, the easy access to firing ranges or driving tracks. Smaller LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 19 departments, too, often have less staffing flexibility “emotional fitness” alongside the physical fitness to backfill officers’ shifts for particular assignments required of officers through teaching coping skills, or less resources for overtime pay in order to like how to destress or recognize bad behaviors in maintain coverage during the training period. These themselves.64 We believe all of these arguments have staffing challenges can be compounded in smaller merit. Experts noted an advanced academy could be departments when there are vacancies or absences completed in a number of weeks, not the months due to illness or personal leave.60 This means that that the basic training academy requires. while larger departments may supplement mandated Establish lifelong learning pathways. With training with additional exposure to mental health the exception of obtaining a POST basic training training, de-escalation techniques, or communication certificate before entering the profession, skills, for example, smaller departments are not California does not require peace officers to obtain equally able to train beyond the minimum.61 The professional certification in order to advance Los Angeles Police Department, one of the largest through their careers. However, POST does offer departments in the state, already brings back several professional peace officer certificates – at the each basic academy cohort for additional training intermediate, advanced, supervisory, management, before completing their probationary period. The and executive levels – all of which are voluntary.65 department currently is designing an additional To qualify for this training, officers must complete training regimen to bring back academy cohorts at an increasing level of higher education units or the three-year mark to focus on refresher training degrees, years of law enforcement experience, and around community building, tactical emergency first- verifiable hours of law enforcement training.66 Some aid and trauma care, command and control, and field departments may incentivize this training through operations.62 salary increases or by making completion mandatory Some officers also noted that an individual for advancement into certain roles, but these department’s culture and willingness to embrace new requirements are not standardized across the state. and ongoing training – not undermine it – also can Some officers suggested this program should be impact how much ongoing training officers receive. strengthened to build officers’ competencies more Of the officers who responded to our survey, one- consistently across the profession. This could be fifth said department culture and lack of support done by making such certificates mandatory for from superior officers are almost always or often promotion through peace officer ranks and/or barriers to continuing training.63 expanding the training content to reinforce critical OPTIONS FOR IMPROVEMENT skillsets deemed necessary at each various level. Improve training intervals with a second This training also could be used to expose seasoned academy experience. Several experts envisioned officers to experts outside of law enforcement, a second, more advanced academy for journeyman such as mental health specialists, social services officers with less than five years of experience. professionals, psychologists, and others.67 Some emphasized the approach as an opportunity to reinforce new and relevant topics and build Expand options for online learning. Some officers resiliency so officers could better acclimate to the suggested POST make it easier for officers to access trauma they encounter on the job. Others suggested training by making more courses available online, it could be used to refresh essential skills, such as both for students to take at their own pace or for communication and interviewing, or to build up instructors to facilitate in live classroom settings. 20 | LITTLE HOOVER COMMISSION Officers described several potential benefits to participants from several local agencies, similar to virtual training: It could expand access to formal, how the Governor’s Office of Emergency Services professor-led courses, particularly for officers in facilitates emergency preparedness training for departments that lack designated in-house trainers. regional organizations.70 It could facilitate peer learning and idea sharing CALIFORNIA MUST DEVELOP ROBUST across regions and departments, allowing officers to ONGOING EDUCATION FOR ALL PEACE gain new insights and perspectives on ways to better OFFICERS engage in their own communities. It could facilitate California falls short of ensuring that officers receive consistent learning across the state, particularly if adequate and appropriate training throughout the developed to address topics of universal interest to lifetime of their service. Too often, additional training all departments, such as updates to state laws or is a budgetary decision, where those departments how to use social media. Instead of waiting for in- with resources are able to reinforce and refresh person annual conferences or other periodic training critical skills and those without resources are not. opportunities, it could improve the frequency These inequities play out in our communities when with which officers are exposed to certain topics officers go out onto the streets. and reduce time waiting for classes to become available especially for in-demand courses. It also Ramping up training for California’s peace officers could potentially reduce travel time and expenses will cost money. But the cost of inaction is too great. for departments, making additional training more affordable.68 California must invest in a thoughtful, robust ongoing education program that is tailored to Create testing and evaluation materials to state expectations for officers, whatever their support education. Typically, POST does not role or tenure. To help ensure the safety of our develop curriculum or provide lesson plans or communities, the state must do more to ensure testing materials. Instead, POST typically relies on officers receive effective, timely, relevant training instructors who are deemed subject matter experts throughout their careers. to create their own educational content which is then approved by POST. However, if POST worked with Recommendation 8: POST should establish in a curriculum designers and test creators to develop new advanced academy experience, required for standardized educational content, some experts officers with between two to five years of experience. suggested it could help ensure the lessons were tied This advanced academy should be designed to to established learning expectations and outcomes.69 reinforce entry level training and incorporate the more advanced concepts currently embedded in Send POST instructors to departments to the basic academy so that officers can better apply lead training sessions. Officers suggested POST them within the context of on-the-job experience. could develop a team of in-house instructors to The second academy should include sufficient time bring the training directly to departments, rather to reinforce critical skills that are not yet adequately than having departments send officers to various covered in required training. training courses. For small departments with limited resources, such a change could help ensure timely completion of mandated training, particularly on topics for which there are no in-house trainers. Experts envisioned organizing training to include LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 21 Recommendation 9: POST should assess or self-paced online courses, developing training and the existing continuing professional training evaluation course materials for use by departments, requirements to determine whether curricula remain or by hiring instructors to bring classroom/in-person relevant and necessary and make adjustments as instruction directly to departments. needed. Specifically, POST should: SECTION 5: ASSESSING POST ◊ Partner with researchers to develop new LEADERSHIP curriculum that addresses knowledge gaps identified by law enforcement. At a time when law enforcement and community ◊ Update in-service training programs to incorporate relations are often tense and community trust in research knowledge. policing is low, POST is a powerful body for providing leadership particularly, through its authority to ◊ Evaluate whether classroom-based training or steer law enforcement training standards statewide. some other delivery mechanism – in-person Yet, since its formation in 1959, the commission’s practical exercises, or online discussions – would membership has been dominated by law best promote knowledge retention. enforcement officials. While maintaining a majority ◊ To facilitate this effort, lawmakers should increase of law enforcement members will be important to the amount of funding available to support in- ensure this body is representative of the profession it service training so that all officers have access to must also reflect community voices. continuing education and support. COMPOSITION OF THE POST COMMISSION Recommendation 10: POST should identify and By statute, the 18-member commission currently implement ways to improve officer access to is composed of sheriffs and police chiefs, rank and continuing education, such as producing more live file peace officers, city and county elected officials, Number of Members Experience/Qualifications Appointing Body 5 Sheriffs; chiefs; peace officers Governor 4 Rank and file peace officer; sergeant or below as a deputy Governor sheriff, city police officer, marshal, or state-employed peace officer 1 Rank and file peace officer; sergeant or below, with Governor leadership in a California-based law enforcement association 2 Elected officer; county chief administrative officer Governor 1 Educator or trainer in the field of criminal justice Governor 2 Public member, not peace officer Governor 2 Public member, not peace officer, with experience in President pro Tempore of the implicit and explicit bias, cultural competency, mental Senate and Speaker of the Assembly health and policing, work with vulnerable populations 1 California Attorney General Ex officio member Source: California Penal Code, Section 13500. 22 | LITTLE HOOVER COMMISSION public members, an educator, and the state Attorney could help POST reflect on how peace officers are General.71 In its current configuration, as many as trained to engage with community members. three-quarters of the members come from a law ◊ Mental health, health, social service professionals enforcement or criminal justice background. who regularly engage with underserved communities and can inform training based on Recent legislation, authored by Senate President pro their own expertise. Tempore Toni Atkins in 2019, doubled the number of public members serving on the commission by ◊ Individuals with expertise in educating and adding two non-peace officers explicitly to bring in training adults and who understand the science experience around issues challenging the profession: of learning and how to apply that to police implicit and explicit bias, cultural competency, curriculum. mental health and policing, vulnerable populations.72 ◊ Informed academics and researchers who actively (Previous legislation in 2007 and 1999, had increased study issues relevant to the law enforcement by two the number of peace officers serving on the profession and can help monitor training and look commission.73) at ways to improve or change the training based on research. EVALUATING DISTRIBUTION OF SEATS AT THE TABLE Experts argued that a shuffling of seats to add With the power to influence training standards more civilian voices could create more inclusive for profession that requires a high level of decision-making around issues related to the type, public confidence, the composition of the POST quality, and quantity of training law enforcement Commission matters. Yet, as currently configured, officials receive in California. Ultimately, some the membership is not balanced between individuals suggested such a change also could help improve with and without law enforcement experience. the general credibility of the POST Commission and ultimately strengthen the relationship between law Throughout its study, the Commission heard enforcement and communities statewide. from experts, both within and outside of law enforcement, who suggested POST needs to reconfigure its membership. As currently configured, Yet, as currently configured, with the larger balance of membership falling to the membership is not law enforcement professionals, experts said it is balanced between individuals incumbent on members to reflect the needs of their broader communities and not just represent the with and without law law enforcement perspective. But a better way to enforcement experience. incorporate these perspectives would be to formally bring in them into the conversation. They advocated creating room for: A PRECEDENT FOR CHANGE There is some precedent for diversifying the ◊ Members of vulnerable communities, such as composition of professional state boards. Compared formerly incarcerated people, impacted family to some other regulatory bodies, the POST members, people of color who come from Commission has far less public representation. communities that traditionally have had a poor For example, the California Board of Medicine has relationship with police, people with mental or eight doctors and seven public members.74 POST, by developmental disabilities. These populations LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 23 contrast, has roughly 14 members who are – or may can speak to the often-changing realities of the job be – affiliated with law enforcement and just four – the balance of the POST Commission must shift to public members who are not peace officers. better incorporate a variety of civilian voices. Afterall, the role of the Commission is to set the training A bill recently vetoed by the Governor would have standards and ensure officers are effectively trained required diversity appointments to California’s to exercise their powers in the public’s protection. governmental volunteer boards, including POST. If enacted, the legislation would have required POST Recommendation 11: Lawmakers should modify include at least one member or commissioner the POST Commission to add additional public from an underrepresented community, defined as members and ensure broad representation that individuals who identify as Black, African American, includes members of vulnerable communities, Hispanic, Latino, Asian, Pacific Islander, Native health and mental health professionals who serve American, Native Hawaiian, or Alaska Native; who vulnerable communities, and experts in adult self-identify as gay, lesbian, bisexual, or transgender; education and scientific research. In filling these who has served in the US military; or who has a positions, the appointing authorities should bear in physical or mental disability.75 Such a change could mind critical nature of ethnic and racial diversity and help ensure representation on POST for members strive to ensure that POST leadership is reflective of of vulnerable communities, as advocates suggest is California’s diverse population. needed. Other states too, have considered ways to expand civilian participation on law enforcement oversight boards. In one recent example, Washington State increased membership of the Criminal Justice Training Commission, the state’s POST equivalent, from 16 to 21 members.76 Now, 11 of the 21 appointees are civilians without law enforcement experience. Previously, the overwhelming majority of members were law enforcement professionals. This change was part of a comprehensive police reform package that also amended the commission’s purpose to “strive to promote public trust and confidence in every aspect of the criminal justice system,” and to “enhance the integrity, effectiveness, and professionalism of officers” through its training and programs. CREATING A MORE REPRESENTATIVE POST At 18 members, the POST Commission is large enough. Still, the composition of the commission must be reflective and inclusive of both officers and the communities in which they serve. While maintaining a majority of peace officers – those who 24 | LITTLE HOOVER COMMISSION Appendix A POST Regular Basic Course Curriculum: Minimum Instructional Hours by Topic Minimum Instructional Hours Learning Domain Subject (Percent of Total Instructional Hours) Operations - General 118 hours (20%) 18 Investigative Report Writing 48 16 Search and Seizure 12 17 Presentation of Evidence 6 23 Crimes in Progress 20 26 Critical Incidents 8 30 Crime Scenes, Evidence, and Forensics 12 31 Custody 2 36 Information Systems 2 40 Weapons Violations 4 43 Terrorism Awareness 4 Operations – Community Policing, Communications 59 hours (10%) 3 Principled Policing in the Community 26 37 People with Disabilities 15 38 Gang Awareness 2 42 Cultural Diversity/Discrimination 16 Operations – Vehicle 94 hours (16%) 19 Vehicle Operations 40 21 Patrol Techniques 12 22 Vehicle Pullovers 14 28 Traffic Enforcement 16 29 Traffic Accident Investigation 12 Operations – Victims/Crimes 77 hours (13%) 4 Victimology/Crisis Intervention 6 6 Property Crimes 6 7 Crimes Against Persons 6 9 Crimes Against Children 4 10 Sex Crimes 4 12 Controlled Substances 12 25 Domestic Violence 10 27 Missing Persons 4 34 First Aid and CPR 21 39 Crimes Against the Justice System 4 Weapons/Defensive Tactics/Use of Force 156 hours (27%) 20 Use of Force/De-escalation 16 24 Handling Disputes/Crowd Control 8 33 Arrest and Control 60 35 Firearms/Chemical Agents 72 LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 25 Appendix A: Continued Minimum Instructional Hours Learning Domain Subject (Percent of Total Instructional Hours) Self-Improvement 52 hours (9%) 1 Leadership, Professionalism and Ethics 8 32 Lifetime Fitness 44 Legal Education 25 hours (4%) 2 Criminal Justice System 2 5 Introduction to Criminal Law 4 8 General Criminal Statutes 2 11 Juvenile Law and Procedure 3 13 ABC Law 2 15 Laws of Arrest 12 Learning Domains No Longer in Use 14 41 Total Minimum Instructional Hours: 581 hours (100%) Note: POST requires additional hours dedicated to instruction and testing, scenario tests, and POST-constructed comprehensive tests. Source: CA Commission on Peace Officer Standards and Training (POST). Regular Basic Course Training Specifications. https://post.ca.gov/regular- basic-course-training-specifications. Accessed October 26, 2021. Also, Meagan Poulos, Legislative Liaison/Public Information Officer, POST. September 22, 2021. Personal communication with Commission staff. 26 | LITTLE HOOVER COMMISSION Appendix B POST Field Training Program Topics ◊ Agency Orientation/Department Policies ◊ Officer Safety Procedures ◊ Ethics ◊ Use of Force ◊ Patrol Vehicle Operations ◊ Community Relations/Professional Demeanor ◊ Radio Communication Systems ◊ Leadership ◊ California Codes and Laws ◊ Search and Seizure ◊ Report Writing ◊ Control of Persons/Prisoners/Mentally Ill ◊ Patrol Procedures ◊ Investigations/Evidence ◊ Tactical Communication/Conflict Resolution ◊ Traffic ◊ Self-Initiated Activities ◊ Agency-Specific Activities Source: CA Commission on Peace Officer Standards and Training (POST). Field Training Program. https://post.ca.gov/field-training-program. Accessed October 26, 2021. LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 27 Notes 1. Note: The Commission on Peace Officer 8. Robin S. Engel, PhD, University of Cincinnati, Standards and Training also develops and Ohio; Nicholas Corsaro, PhD, University of oversees training standards for the nearly 8,000 Cincinnati; Gabrielle T. Isaza, PhD, IACP/UC dispatchers employed by law enforcement Center for Police Research and Policy; Hannah agencies across the state. D. McManus, PhD, IACP/UC Center for Police Research and Policy; and Robert J. Schroeder, 2. David Billingsley, Committee Counsel, Assembly Interim Chief of Police (Ret.), Louisville Metro Committee on Public Safety. February 11, 2021. Police Department, Kentucky. “Examining Written testimony to the Commission. the Impact of Integrating Communications, Assessment, and Tactics (ICAT) De-escalation 3. California Code of Regulations § 1059. Training for the Louisville Metro Police Requirements for Basic Course Certification. Department: Initial Findings. 2020. https://www. Also, California Code of Regulations § 1052. theiacp.org/sites/default/files/Research%20 Requirements for Course Certification. Center/LMPD_ICAT%20Evaluation%20Initial%20 4. Manny Alvarez, Executive Director, Commission Findings%20Report_FINAL%2009212020.pdf. on Peace Officer Standards and Training. Accessed September 29, 2021. February 11, 2021. Written testimony to the 9. Robin S. Engel, PhD, University of Cincinnati, Commission. Ohio; Gabrielle T. Isaza, PhD, IACP/UC Center for 5. Note: For more information see, Cynthia Lum Police Research and Policy; Ryan Motz, Research and Christopher Koper. “Evidence-Based Policing: Associate, IACP/UC Center for Police Research Translating Research Into Practice.” 2017. Oxford and Policy; Nicholas Corsaro, PhD, University of University Press. Cincinnati. “Examining the Impact of Integrating Communications, Assessment, and Tactics (ICAT) 6. Emily Owens, Department of Criminology, Law De-escalation Training for the Louisville Metro and Society and Department of Economics, Police Department: Report 2 – Supplemental University of California, Irvine, et al. “Can You findings.” March 24, 2021. https://www.theiacp. Build a Better Cop? Experimental Evidence org/sites/default/files/Research%20Center/ on Supervision, Training, and Policing in LMPD_ICAT_2nd%20Report_Supplemental%20 the Community.” 2018. American Society of Findings_FINAL.pdf. Accessed September 30, Criminology. Criminology & Public Policy, Volume 2021. 17, Issue 1. https://onlinelibrary.wiley.com/ doi/epdf/10.1111/1745-9133.12337. Accessed 10. Dr. Stephen James, Assistant Professor, College of September 30, 2021. Nursing, Washington State University. March 11, 2021. Written testimony to the Commission. Also, 7. George Wood, Institute for Policy Research, Various participants. June 29, 2021. Little Hoover Northwestern University, et al. Procedural Commission Advisory Committee Meeting on justice training reduces police use of force California Law Enforcement Training. and complaints against officers. May 5, 2020. Published by National Academy of Sciences, 11. Engel, R. S., McManus, H. D., & Herold, T. D. (2020) Volume 117, No. 18 9815-9821. https://www. Does de-escalation training work? A systematic pnas.org/content/117/18/9815/tab-article-info. review and call for evidence in police use of force September 30, 2021. reform. Criminology and Public Policy. https:// onlinelibrary.wiley.com/doi/epdf/10.1111/1745- 9133.12467. Accessed September 30, 2021. 28 | LITTLE HOOVER COMMISSION 12. Robert Worden, et al. July 2020. “The Impacts 20. Abdul Pridgen, Vice President, California Police of Implicit Bias Awareness Training in the Chiefs Association. February 25, 2021. Written NYPD.” https://www.documentcloud.org/ testimony to the Commission. Also, Brian Marvel, documents/7203724-The-Impacts-of-Implicit- President, Peace Officers Research Association of Bias-Awareness-Training. Accessed September California. February 25, 2021. Written testimony 30, 2021. to the Commission. 13. Michael Sierra-Arévalo, PhD, Assistant Profession, 21. Luann Pannell, Ph.D, Director of Police Training Department of Sociology, University of Texas and Education, Los Angeles Police Department. at Austin. “American Policing and the Danger June 29, 2021. Little Hoover Commission Imperative.” Law & Society Review. Volume 55, Advisory Committee Meeting on California Law Issue 1. March 2021. Pages 70-103. https:// Enforcement Training. onlinelibrary.wiley.com/doi/full/10.1111/ 22. Dr. Tracie Keesee, Co-founder and Senior Vice lasr.12526. Accessed September 30, 2021. President of Justice Initiatives, Center for Policing 14. Peter Bibring, Senior Counsel, ACLU of Equity. June 29, 2021. Little Hoover Commission Southern California. March 19, 2021. Personal Advisory Committee Meeting on California communication with Commission staff. Law Enforcement Training. Also, Marc Philpart, Managing Director, PolicyLink. January 14, 2021. 15. Government Code, Section 12525.2. Personal communication with Commission staff. 16. Department of Justice. Open Justice. Use of Force 23. Hans Menos, Vice President of Law Enforcement Incident Reporting 2019. https://openjustice. Initiatives, Center for Policing Equity. February 25, doj.ca.gov/data-stories/2019/use-force-incident- 2021. Written testimony to the Commission. reporting-2019. Accessed September 30, 2021. 24. Manny Alvarez, see endnote 4. 17. Dr. Stephen James, see endnote 10. 25. POST. Advisory Committee Members. https:// 18. Dr. Stephen James, see endnote 10. Also, Manny post.ca.gov/Advisory-Committee. Accessed Alvarez, Executive Director, Commission on Peace September 30, 2021. Officer Standards and Training. June 29, 2021. Little Hoover Commission Advisory Committee 26. Little Hoover Commission. November 2021. Issue Meeting on California Law Enforcement Training. Brief: Comparing Law Enforcement Basic Training Academies. Report #264. 19. Dr. Robin Engel, Director, IACP/UC Center for Police Research and Policy, University of 27. Little Hoover Commission. November 2021. Issue Cincinnati, et al. January 21, 2020. Personal Brief: California Law Enforcement Survey. Report communication with Commission staff. Also, Dr. #263. Emily Owens, Professor, University of California, 28. Abdul Pridgen, see endnote 20. Irvine. January 12, 2021. Personal communication with Commission staff. Also, Evan White, 29. Staci Yutzie, Program Development Coordinator, Executive Director, and Johanna Lacoe, Research Oregon Department of Public Safety Standards Director, California Policy Lab. July 27, 2021. and Training. March 11, 2021. Written testimony Personal communication with Commission staff. to the Commission. LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 29 30. Note: For more information, see POST Instructor 46. Abdul Pridgen, see endnote 20. Development Institute at https://post.ca.gov/IDI- 47. Little Hoover Commission, see endnote 26. Levels. 48. Brian Marvel, see endnote 20. 31. Little Hoover Commission, see endnote 27. 49. POST Regulation 1005(d). Also, POST. Perishable 32. Brian Marvel, see endnote 20. skills program. https://post.ca.gov/perishable- 33. Corporation for a Skilled Workforce. “Basic Law skills-program. Accessed September 14, 2021. Enforcement Training in Washington State: 50. Vehicle High Speed Pursuit requirements: Penal A Comparison and Evaluation.” https://ofm. Code, Section 13519.8 and POST Regulation wa.gov/sites/default/files/public/publications/ 1081(a)(22). Arrest and firearms course: Penal CSWBasicLawEnforcementStudyJuly2019_0.pdf. Code, Section 832. Racial Profiling requirements: Accessed August 30, 2021. Penal Code, Section 13519.4(i). 34. Little Hoover Commission, see endnote 27. 51. POST. Required Updated or Refresher Training 35. Little Hoover Commission, see endnote 27. Requirements. https://post.ca.gov/refresher- training. Accessed September 14, 2021. 36. Manny Alvarez, see endnote 4. 52. Manny Alvarez, see endnote 4. 37. Manny Alvarez, see endnote 4. 53. POST. California POST Course Catalogue. https:// 38. Abdul Pridgen, see endnote 20. catalog.post.ca.gov/Default.aspx. Accessed September 17, 2021. 39. Brian Marvel, see endnote 20. 54. Manny Alvarez, see endnote 4. 40. Abdul Pridgen, see endnote 20. 55. Little Hoover Commission, see endnote 27. 41. Brian Marvel, see endnote 20. 56. Abdul Pridgen, see endnote 20. 42. Linda Vaughn, M.Ed., President and CEO, South Bay Regional Public Safety Training Consortium. 57. Brian Marvel, President, PORAC. January 21, 2021. June 14, 2021. Personal communication with Personal communication with Commission staff. Commission staff. 58. Luann Pannell, see endnote 21. 43. Abdul Pridgen, see endnote 20. 59. Joseph Cortez, Lieutenant, Santa Monica Police 44. Luann Pannell, Ph.D, Director of Police Training Department and Co-chair, IACP Research and Education, Los Angeles Police Department. Advisory Committee. January 27, 2021. Personal August 3, 2021. Personal communication with communication with Commission staff. Commission staff. Also, Damian Velasco, Sergeant II, Police Training and Education, Los Angeles 60. Cory Salzillo, Legislative Director, California Police Department. August 26, 2021. PSL1 Course Sheriff’s Association. April 23, 2021. Personal Outline. On file. communication with Commission staff. Also, Ingrid Braun, Sheriff, Mono County. June 29, 45. Little Hoover Commission, see endnote 27. 2021. Personal communication with Commission staff. 30 | LITTLE HOOVER COMMISSION 61. Lai Lai Bui, Sergeant, Sacramento Police the Commission, increasing its total membership Department. May 24, 2021. Personal to 16. AB 1334 (Lowenthal), Chapter 702, Statutes communication with Commission staff. of 1999, added one additional rank and file peace officer to the commission, increasing its total 62. Luann Pannell, see endnote 44. Personal membership to 15. communication with Commission staff. Damian Velasco, Sergeant II, Police Training and 74. Medical Board of California. Board Members and Education, Los Angeles Police Department. Executive Staff. https://www.mbc.ca.gov/About/ August 26, 2021. Members/. Accessed September 1, 2021. 63. Little Hoover Commission, see endnote 27. 75. AB 105 (Holden), 2020. 64. Joyce Dudley, Santa Barbara County District 76. Washington State Legislature. SB 5051, Chapter Attorney and chair, POST. May 25, 2021. Personal 323, Laws of 2021. http://lawfilesext.leg.wa.gov/ communication with Commission staff. Also, biennium/2021-22/Pdf/Bills/Session%20Laws/ Ingrid Braun, see endnote 60. Senate/5051-S2.SL.pdf?q=20210902130605. Accessed September 2, 2021. 65. POST. POST Professional Peace Officer Certificates. https://post.ca.gov/Peace-Officer- Certificates. Accessed September 17, 2021. Also, California Code of Regulations. Title 11, § 1011. Certificates. 66. California Code of Regulations, 11 CA ADC § 1011. Certificates. 67. Little Hoover Commission, see endnote 27. 68. Little Hoover Commission, see endnote 27. Also, Joseph Cortez, Lieutenant, Santa Monica Police Department and Co-chair, IACP Research Advisory Committee. February 11, 2021. Written testimony to the Commission. Also, Ingrid Braun, see endnote 60. 69. Luann Pannell, see endnote 21. 70. Little Hoover Commission, see endnote 27. Also, Ingrid Braun, see endnote 60. 71. Penal Code, § 13500. 72. SB 399 (Atkins). Chapter 594, Statutes of 2019. 73. AB 1229 (Carter), Chapter 409, Statutes of 2007, added an additional rank and file peace officer to LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 31 This page has been intentionally left blank. 32 | LITTLE HOOVER COMMISSION Little Hoover Commission Members CHAIRMAN PEDRO NAVA | Santa Barbara BILL EMMERSON | Redlands Appointed to the Commission by Speaker of the Assembly Appointed to the Commission by Governor Edmund G. John Pérez in April 2013 and reappointed by Speaker Brown Jr. in December 2018. Former senior vice president of the Assembly Anthony Rendon in 2017 and again of state relations and advocacy at the California Hospital in 2021. Government relations advisor. Former State Association, State Senator from 2010 to 2013, State Assemblymember from 2004 to 2010, civil litigator, Assemblymember from 2004 to 2010, and orthodonist. deputy district attorney and member of the state Coastal Commission. Elected chair of the Commission in March SEN. DAVE MIN | Irvine 2014. Appointed to the Commission by the Senate Rules Committee in September 2021. Elected in November 2020 VICE CHAIRMAN SEAN VARNER | Riverside to represent the 37th Senate District. Represents Anaheim Appointed to the Commission by Governor Edmund G. Hills, Costa Mesa, Huntington Beach, Irvine, Laguna Beach, Brown Jr. in April 2016 and reappointed in January 2018. Laguna Woods, Lake Forest, Newport Beach, Orange, Managing partner at Varner & Brandt LLP where he Tustin, and Villa Park. practices as a transactional attorney focusing on mergers and acquisitions, finance, real estate, and general counsel SEN. JIM NIELSEN | Gerber work. Elected vice chair of the Commission in March 2017. Appointed to the Commission by the Senate Rules Committee in March 2019. Elected in January 2013 to DION ARONER | Berkeley represent the 4th Senate District. Represents Chico, Oroville, Appointed to the Commission by the Senate Rules Paradise, Red Bluff, Yuba City, and surrounding areas. Committee in April 2019. Partner for Aroner, Jewel, and Ellis. Former State Assemblymember from 1996 to 2002, CATHY SCHWAMBERGER | Calistoga chief of staff for Assemblymember Tom Bates, social Appointed to the Commission by the Senate Rules worker for Alameda County, and the first female president Committee in April 2018 and reappointed in January 2019. of Service Employees International Union 535. Retired associate general counsel for State Farm Mutual Automobile Insurance Company. Former board member DAVID BEIER | San Francisco of the Civil Justice Association of California and the Capital Appointed to the Commission by Governor Edmund G. Political Action Committee. Brown Jr. in June 2014 and reappointed in January 2018. Managing director of Bay City Capital. Former senior officer JANNA SIDLEY | Los Angeles of Genentech and Amgen, and counsel to the U.S. House of Appointed to the Commission by Governor Edmund Representatives Committee on the Judiciary. G. Brown Jr. in April 2016 and reappointed in February 2020. General counsel at the Port of Los Angeles since ASM. TASHA BOERNER HORVATH | Encinitas 2013. Former deputy city attorney at the Los Angeles City Appointed to the Commission by Speaker of the Assembly Attorney’s Office from 2003 to 2013. Anthony Rendon in October 2021. Elected in November 2018 to represent the 76th Assembly District. Represents Full biographies are available on the Commission’s Camp Pendleton, Oceanside, Vista, Carlsbad, and Encinitas. website at www.lhc.ca.gov. CYNTHIA BUIZA | Los Angeles Appointed to the Commission by Speaker of the Assembly Anthony Rendon in October 2018. Executive director of the California Immigrant Policy Center. Former policy director for the American Civil Liberties Union, San Diego, and policy and advocacy director at the Coalition for Humane Immigrant Rights of Los Angeles. ASM. PHILLIP CHEN | Yorba Linda Appointed to the Commission by Speaker of the Assembly Anthony Rendon in October 2021. Elected in November 2016 to represent 55th District. Represents portions of Los Angeles, Orange and San Bernardino counties and the cities of Brea, Chino Hills, Diamond Bar, La Habra, Industry, Placentia, Rowland Heights, Walnut, West Covina and Yorba Linda. LAW ENFORCEMENT TRAINING: IDENTIFYING WHAT WORKS FOR OFFICERS AND COMMUNITIES | 33 “DEMOCRACY ITSELF IS A PROCESS OF CHANGE, AND SATISFACTION AND COMPLACENCY ARE ENEMIES OF GOOD GOVERNMENT.” By Governor Edmund G. “Pat” Brown, addressing the inaugural meeting of the Little Hoover Commission, April 24,1962, Sacramento, California Milton Marks Commission on California State Government Organization and Economy www.lhc.ca.gov