Journal of Criminal Law and Criminology Volume 52 Article 11 Issue 1 May-June

Summer 1961 The mpI ortance of Training and Education in the Professionalization of Law Enforcement George H. Brereton

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Recommended Citation George H. Brereton, The mporI tance of Training and Education in the Professionalization of Law Enforcement, 52 J. Crim. L. Criminology & Police Sci. 111 (1961)

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THE IMPORTANCE OF TRAINING AND EDUCATION IN THE PROFESSIONALIZATION OF LAW ENFORCEMENT*

GEORGE H. BRERETON

George H. Brereton is Deputy Director, Department of Justice, for the State of California. Mr. Brereton has had wide experience in the law enforcement field, serving at one time with the Berkeley Police Department, subsequently as Director of the Police Training School, San Jose (California) State College, and with the California State Department of Education ap First State Supervisor of Peace Officers' Training. Mr. Brereton has also served as Chief of the Bureau of Criminal Identifica- tion and Investigation and as Assistant Director, Division of Criminal Law and Enforcement, Department of Justice, State of California. He has written extensively on law enforcement problems including earlier articles in this Journal.-EDITOR.

Anyone who has given any thought at all to the fessionalization of the police service, and also professionalization of law enforcement personnel, because of the fact that no law enforcement agency or to obtaining general recognition of law enforce- today can function effeciently or effectively unless ment as a profession, will have to agree that one it includes high standards of education and train- of the most important steps we must take in its ing in its plans and operations. accomplishment is the establishment of educational In presenting this subject it will be necessary standards and training which are comparable to to single out certain individuals and law enforce- those which are found in many other "professions". ment agencies, or schools and colleges, which This article is concerned primarily with this one influenced, in varying degrees of importance, the phase of standards and qualifications which must professionalization of law enforcement officers. be established and attained if we, in law enforce- In doing so I have no intention of either slighting ment, are to be recognized as a profession. How- or disparaging the influence or the activities of per- ever, I am in no way attempting to minimize others who are not mentioned. Time has not this subject, nor is other attributes and qualifications which we expect mitted exhaustive research of to permit me to name everyone to find in, and must require of the true professional space available who has participated in this activity. law enforcement officer. The intelligence, physical The idea that it is necessary to have a well attributes, age, character, reputation, and per- trained "career" or professional police officer is sonality are all important. "The qualities of in- by no means a new one. This was recognized and tegrity, honesty, justice, decency, benevolence, put into practice at a very early date, both on the virtues we look compassion, and all the other Continent of Europe and in England. For many for in wholesome leadership throughout the world years the various police departments in Europe are the same qualities that we desire to see repre- have had extensive training programs for their sented throughout all of the police service."' police officers. Their "commissioned" officers, as But I cannot include these topics in this paper. distinguished from their non-commissioned officers, I shall discuss only some of the highlights in the are educated in colleges and universities for a development of police education and training career in public service, or for the army, from which in the United States. I do this because of their they are often recruited. These men make a career inseparable and important relationship with pro- of the police service and are promoted through * An address made to the Oregon-Washington Law- various ranks and sometimes are promoted from mans' Association, March 22, 1960, Salem, Oregon. a small city to a larger city as opportunities are 'DANIEL S. C. Liu, Chief of Police, Honolulu, presented and their abilities are recognized. Hawaii, Professional Standards of the Police Service, Nor are the ideas of establishing minimum stand- Tam PoucE Y-AR BooK, International Association of Chiefs of Police, Inc., 1959, pp. 169-170. ards, selection, training, etc., any longer new or GEORGE H. BRERETON [Vol. 51 unique in the United States. They have been 5. Establish crime prevention divisions and "old hat" for many years. The question which has appoint a trained criminologist to conduct perturbed me the most and which, I am sure has the activities of the division. caused numerous other law enforcement officials 6. Establish a merit system in police depart- great concern, is why it has taken so long for so ments. many law enforcement officials, city, county, state 7. Educate the public and secure its friendship 3 legislators, and citizens, to recognize what is needed and cooperation with the police department. to improve law enforcement and to take the neces- An additional recommendation which I will sary steps to accomplish it. Certainly, it could not make, although it might be included in Vollmer's be from lack of knowledge of the problems since 96 recommendation, is that in order to obtain they have been enumerated, and, with suggested the very best personnel available in the city, remedies, have been broadcast both orally and in county, or state: written form for many years by outstanding stu- Pay good salaries, provide adequate vacation, dents of government and law enforcement officials. sickness and disability benefits and establish Illustrative of what I mean is a statement, made in a sound and efficient pension and retirement 1923 by August Vollmer, famous chief of police system. (now deceased) of Berkeley, California. With With respect to his fourth recommendation, it reference to police recruiting he said: "The first was because of his efforts that the University of step in any plan to make our police departments California first established, in the summer session more competent to control crime is keeping out of 1916, a six week criminology and police course. rather than the removal after they get in-of unde- This was "probably the first course designed for sirable, incompetent, and mentally or physically police training in a big university".4 I do not wish unfit persons from the police force.., an unfit or to imply, in quoting Chief Vollmer's statement, incompetent policeman weakens the moral fiber that no thought had been given by anyone else of his associates and at the same time destroys to police training or that police training programs the confidence of the public in the department. had not been inaugurated prior to 1923. Such is The protective organization suffers, and society not the case. always pays the bill when the 'policemen' of a HIGIILIGHTS IN FORTY YEARS OF POLICE community are dishonest, brutal, stupid, and TRAINING physically or tempermentally unsuited to their 2 work." As early as 1906 a training school was estab- Vollmer, who at the time of this statement was lished by the Pennsylvania State Police. In 1911 on a year's leave of absence from Berkeley, and the Detroit Police Department established its was Chief of Police of Los Angeles, made seven training school for recruits to be followed a few recommendations which would in his opinion raise years later by New York's Police Academy. In the standards and vastly improve the police de- 1917 New York State Police established a training partments of virtually every city in the United school for its troopers, which, in 1921 expanded its States. They were: training activities so that any New York peace offi- 1. Establish and maintain higher standards of cer was allowed to enroll in the six week training education, mental, moral and physical re- course whichwas given eachyearduring the months quirements for applicants. of January and February. In 1928 the New York 2. Observation of all recruits by a medicopsy- training program was further extended by es- chologist during their training period. tablishing zone or regional schools for local peace 3. Withhold police authority from the recruit officers in nineteen zones into which the state was until he has proved by his conduct and his divided. In 1921 the New Jersey State Police knowledge that he is fitted to discharge the established its training school, which a few years later, was made available to New Jersey peace duties of his position. officers, other than State Police. This was a three 4. Establish preparatory and promotional months school which was operated during the fall courses for policemen in colleges and univer- of each year. sities. 2 3Ibid. AuGUST VOLLMER in DEARBORN INDEPENDENT, 4 MUNICIPAL POLICE ADxMNIsTRATION 4th Edition, June 21, 1924, pp. 13-14, incl. (Italics added.) 1954, International City Managers' Association, p. 210. PROFESSIONALIZATION OF LAW ENFORCEMENT

During this same period training schools were reviewing the programs of the four cities just established by Michigan State Police and the mentioned he states: "It immediately becomes Police Departments of Detroit, Louisville, Cincin- obvious that the training made necessary by pres- nati, Portland (Oregon), Los Angeles, and Berke- ent-day conditions cannot be met by the old ley. They were considered by Munro "to stand methods. In fact the ultimate goal is possible only out in their respective spheres", but with respect through two means: "State supported and controlled 9 to the training schools of other departments "most schools for police only; 'university cooperation". of them (were) elementary compared to Euro- "Two new aspects of the work (training) have pean schools"A A more critical evaluation of local been recently developed in the university field, police training and of departmental training both widely divergent, but both offering splendid schools in the United States prior to 1931 is found examples of the new trend of schooling." The in the Wickersham Report, named for George first "is at Northwestern University, and is an W. Wickersham, Chairman of the National Com- intensive 4-week course" and the second "is the mission on Law Observance and Enforcement. college course offered at San Jose (Calif.) State David G. Monroe says, as a result of a personal Teachers' College". 0 survey of 225 towns having less than 10,000 popu- In spite of the generally unsatisfactory state lation, and 75 towns between 10,000 and 75,000, of police training reported in the Wickersham plus the information obtained from "question- Report, possibly influenced by the report; prob- naires sent to all cities in the United States over ably influenced, at least in part by Vollmer, and 10,000... there is absolutely nothing done which a few other law enforcement officials, and students by any stretch of the imagination could be con- of government; possibly because of a growing sidered as police training" in the group below realization on the part of law enforcement and 10,000 population. "Not one of the cities had other government officials that more attention experience as a requirement for admission to the had to be given to the careful selection and better force, 216 never inquired if the prospective police- training of peace officers if any success was to be man could handle a gun, and 185 sent the man out attained in combating the increasing crime prob- on duty with no instruction and even without the lems of the period; and probably due in no small aid and advice of an experienced man. Forty measure to the influence of a new leader in law cities placed the beginner with an older man from enforcement, John Edgar Hoover, who in 1924 6 periods of a night to one week." was appointed Director of the Federal Bureau Out of the 383 cities who replied to the 745 of Investigation, in the twenty year period between questionnaires which were sent out "seventy-eight 1920 and 1940 both interest and activity increased (about 20 per cent) reported some method of in all types of in-service and pre-service law en- training. Of the 20 per cent having training, not forcement training. more than 15 gave courses which could be con- In 1927 the chiefs of police of Wisconsin asked sidered to qualify the recruit as the possessor of 7 the State University to organize some form of a proper background for efficient work". Munroe, however, did mention, apparently with training for their officers. This program, which some favor, the programs of Jacksonville, Florida, was provided by the Extension Division of the and Portland, Oregon, (1931) which he reported, University of Wisconsin, was not pre-employment "...lays great stress on laws and ordinances training, but was similar to the "zone" school with a further consideration of the conduct of system developed by the State Police in New York. the officer and a few specialized subjects"; the However, this program was discontinued in 1931 Detroit Police School where "each recruit is subject when Dr. Barry accepted a position in Chicago to a six week's course", and rated four schools, as head of the Juvenile Detention Home. Louisville, New York, Cincinnati, and Berkeley, "In 1929 the University of Chicago established California, as "deserving a close scrutiny".8 After the second type of police training. This was an 5 MuN o, W. B. MuNICdAI, Gov NmENT AND entirely different system from the plan used in ADmINISTRATION, Note 2, p. 166. 6National Commission on Law Observance and Wisconsin. August Vollmer, Chief of Police of Enforcement, REPORT ON POLICE, No. 14, June 26, Berkeley, California, was brought to the Univer- 1931, p. 70. 87Ibid., p. 71. 9 Ibid., p. 79. (Italics added.) Ibid., p. 72. 10Ibid., pp. 83-84. GEORGE H. BRERETON [Vol. 51

sity as Professor of Police Administration in the be mentioned that in the year 1929 the California Political Science Department. State Lesislature amended the act which had "The training as organized by Professor Vollmer created the State Bureau of Criminal Identifica- was divided into two parts. In the Autumn quarter tion and Investigation and made it the duty of there was given a course on Police Administration the Board of Managers of the Bureau "to arrange which included the general principles of organiza- for and organize schools at convenient centers for tion and control of police departments; various training peace officers". 3 Although no immediate methods of selecting, training, and distributing action resulted from this legislation, since no the men, etc. Police Procedure was taught during appropriation accompanied the enactment of the the Winter quarter. This included lectures on law, it does indicate the wide-spread interest of criminal investigation, identification, etc. In addi- California law enforcement officers in the subject tion to the above two courses, during each quarter of training as this legislation was enacted at the a seminar was conducted two hours each week in request of the State Sheriffs' District Attorneys' which specific research projects were carried out and Peace Officers' Associations-it was in effect by the students. the "springboard" from which in 1935 the "Cali- "Although the University of Chicago offered fornia Plan for Peace Officer Training" was opportunities for the training of police officers launched. already in departments, its primary aim was the The establishment of the police program at the training of college students interested in police State College, San Jose, California on September administration. This program was different from 24, 1930, has already been mentioned, however that of the University of Wisconsin as it embodied it may be of interest to know that this was "... the the idea of eventually establishing police service first organized undergraduate program of training 14 and training on a professional status. It is, how- for prospective policemen". ever, impossible to cover the entire police field in Between the years 1929 and 1931 the University an intensive manner through the efforts of one of Southern California developed still another instructor. Although it was a progressive develop- type of police training. Under Dean Emory E. ment, the University of Chicago could not offer Olson, of the School of Citizenship and Public all the instruction which would be necessary to Administration, a combination of extension and graduate a student well grounded in various phases regular university courses were developed. In of police work. This program was also discontinued September 1929 the first "after hour" in-service in the spring of 1930 when Vollmer resigned and police courses were taught at the University's returned to his former position as chief of police Civic Center School to regularly employed peace at Berkeley."" officers. "Full time students first were in attend- Shortly after returning to Berkeley, August ance on the main campus in 1930. Certificates Vollmer accepted a professorship in police adminis- were offered in 1931, bachelor's degrees in 1932, tration at the University of California. There under and master's in 1933".'5 Here we find definite Professor Samuel May, Director of the Bureau courses not only for meeting conditions of the of Public Administration, a program was inau- present, but also with a view to the future in turn- gurated in 1931 where students were trained in the ing out men with a college education who have 16 general field of public administration, "of which had instruction in the police field". police courses constituted but one phase of their During 1931-32 the Scientific Crime Detection instruction... actual training in police work (at Laboratory, which has been mentioned previously, that time) ... was restricted to one course of three gave, in each year, one-month courses in the scien- hours per week" which was taught by Vollmer tific aspects of criminal investigation and iden- throughout the school year and "four hours of tification, which were well prepared and well seminar work" covering police and other fields of 12 attended. However, as anyone will realize if they public administration. examine the courses which were offered, no student While we are considering this period it should PENAL CODE, "3CALIFORNIA4 Sec. 11008. " GEORGE H. BRERETON, Police Training in College 1 MUNICIPAL POLICE ADMINISTRATION, 4th Edition and University, AMERICAN JOURNAL OF POLICE 1954, p. 210. ScIENcE, Vol. 3, Jan.-Feb. 1932, No. 1, pp. 65-66. 15THE DAILY TROJAN, University of Southern 12This program continued to grow and in 1950 a School California, June 16, 1939. of Criminology was established. 16 GEORGE H. BERExT N, op. cit., p. 67. PROFESSIONALIZATION OF LAW ENFORCEMENT who did nothave extensive experience or consider- California contacted Mr. John C. Beswick, Chief able training in natural sciences, could do little of the Bureau of Trade and Industrial Education, more during the one-month session than obtain State Department of Education, and he suggested an appreciation of the value and of the problems a plan whereby state and federal funds might be involved in scientific crime detection. used to establish a general police training program. During 1930-31 Willamette University, con- In October, Mr. Beswick presented this plan to ducted a course of one week's duration for the members of the Peace Officers' Association at their police officers of the State of Oregon." annual meeting in Marysville, California, and an Also in 1931 through the efforts of 0. W. Wilson, advisory committee was appointed to work out then Chief of Police of Wichita, the Kansas League the necessary details. The state advisory com- of Municipalities established a one-week training mittee was composed of five men-the Honorable school at Wichita for the peace officers of Kansas. Earl Warren, then Attorney General of California, Although not connected with any" educational now Chief Justice of the United States, Sheriff institution, this school deserves mention for its Eugene Biscailuz, of Los Angeles County, Chief well planned curricula, selection of instructors, of Police William J. Quinn, of San Francisco, and general, management of accommodations for Clarence S. Morrill, Chief of the Bureau of Crimi- visiting officers. nal Identification and Investigation, and Mr. In addition to those programs previously men- Beswick. "After its organization the committee tioned, in 1935 a well planned and well organized during 1936 and 1937 held a series of conferences pre-employment training program was established in fourteen zones into which the state had been at Michigan State College at East Lansing, Michi- divided." These conferences were "for the purpose gan, and in this same year the National Police of acquainting the sheriffs, district attorneys, Academy was established in the Federal Bureau chiefs of police, and other peace officers with the of Investigation. 'proposed' training program and also to demon- Director J. Edgar Hoover, addressing the In- strate to these local officers teaching techniques ternational Association of Chiefs of Police at their and procedures used in vocational education."20 Forty-second annual Convention at Atlantic City, The California Plan for Peace Officers' Train- New Jersey, on July 9, 1935, said: "With the open- ing originally provided for the development of date set for July 29th and with the beginning ing four types of training schools; the departmental to be made on a limited scale until we have passed training school, the zone training school, the sum- the experimental state, the Attorney General mer school, or "Peace Officers' Technical Insti- hopes to provide in this Police Training School a and the pre-employment training school. university of police nethods which may make the tutes", Bureau's most successful methods a part of the In conjunction with, or in addition to the four "schools" peace officers were regulation police procedure in every part of the given instruction United States. Selected police officials from state in teacher training and training in leading con- s and local units may here receive a complete three ferences." month's course of intensive study in the tech- Since 1946, two additional types of schools nique of modem law enforcement." 8 have been added: (1) The Basic Training School By the beginning of this same year "well or- for Officers with less than three year's experience, ganized and equipped in-service schools were oper- which is operated in two locations, one at the ating in the police departments of Wichita, In- Diablo Valley College in Northern California and dianapolis, Cincinnati, Chicago, Berkeley, Louis- one at the Riverside County Sheriff's Training ville, San Francisco, New York City, and a few Center in Southern California, and (2) The Peace 19 other cities". Officers' Administrative Institute. "The Basic It was also in 1925 that representatives from Training School program consists of a total of 218 the Peace Officers' Association of the State of hours, while the Administrative Institute is a 17 OUTmNE or COURSE, POLICE SCHOOL, Mar. 9-14, 1931, Willamette University College of Law, Salem, 20 G. H. BRExETON, The California Plan for Peace Oregon. Officers'. Training, JoUvRAL or CIm nAL LAW AND 18J. EDGAR HOOVER, address to 42nd Annual Con- CmmnoLoGy, Vol. 30, No. 3, Sept.-Oct., 1939, p. vention of IACP, July 8-11, 1935. PROCEEDINGS, p. 60. 371. Also see MUNICIPAL POLICE ADnmrTnRTioN op. 19 V, A. LEONARD, POLICE ORGANIZATION AND MAN- cit., pp. 192-193. AGEMENT, 1951, p. 138. 21G. H. BPEREToN, op. cit., pp. 371-372. GEORGE H. BRERETON [Vol. 51 three-day program for top-grade administrators Individual police departments, in various areas or supervisors in law enforcement."'' throughout the country had developed their own It should also be mentioned that "the passage of training schools and "academies", at least some the George-Deen Act by Congress in 1936" added of which had good reputations. A few colleges impetus, in some areas to law enforcement train- and universities had become interested in pro- ing. As a result of a request received from Chief viding either in-service, pre-employment, or both L. V. Jenkins, Portland, Oregon, then President types of law enforcement training, to students, of the International Association of Chiefs of or to peace officers in their localities. The Federal Police, a bulletin Trainingfor Police Service was Bureau of Investigation had developed its National prepared and issued by the United States Office of Police Academy and was training officers selected Education. The first draft of this bulletin was pre- from law enforcement agencies throughout the pared by 0. D. Adams, Director of Vocational entire country. The United States Office of Edu- Education for the State of Oregon. Concerning cation, as a result of liberalization of the law by the importance of training, the writers in this Congress, was not only assisting, but encouraging publication said: "Without in any way discounting the training of law, enforcement officers by offering the importance of the selection of personnel, the financial and teaching assistance through its voca- effects of the merit system, adequate salaries, tional representatives, in various types of training and other items of personnel administration, it programs. "Organized police training programs may fairly be stated that an efficient police training (had) been developed in many states on a state- 25 program is one of the principal means for increasing wide, zone, or local basis. and maintaining a high degree of efficiency in law From what has been said it would appear that enforcement work."' n training peace officers was a "booming business", To close this part of my discussion concerning its need had been recognized, and the idea that the development of law enforcement training it was necessary to have an intelligent, well edu- during the first forty years of the twentieth cen- cated, trained law enforcement officer, was uni- tury, it is apropos (of this meeting) to state that versally accepted throughout the entire United in September 1941 "the Department of Police States.26 I am sorry to say that such is not the Science and Administration was organized at truth. Washington State College, Pullman, Washington In spite of all of the effort which had been put ... Under its Director, Dr. V. A. Leonard, the forth by many law enforcement officials and edu- departments offers to qualified students who seek cators; in spite of outstanding examples of the a career in the law enforcement field, four years of value of trainfig and education to be found in a professional police training which lead to the number of departments, colleges, and universities; Bachelor of Science Degree and gives full academic in spite of the assistance and leadership offered recognition to the professional requirement of the by the Federal Bureau of Investigation and the police service" .24 United States Office of Education through its We have seen that by the beginning of the 1940's Vocational Division; in spite of the encourage- apparently great progress had been. made in the ment, information, and publicity, concerning the education and training of law enforcement per- need for and benefits of law enforcement training sonnel. Starting at an early date, by 1928, many disseminated by many national associations such State Police had not only developed compara- as the International Association of Chiefs of own per- tively good training programs for their Police, the International City Managers' Associa- sonnel, but had also made available their facilities tion, the American Municipal Association and and instructors to local law enforcement agencies. numerous state associations of police, sheriffs, 22 See California Program for Peace Officers' Train- 25 ing, State Department of Education, Bureau of In- 'TRAINING FOR PUBLIC SERVICE OCCUPATIONS, dustrial Education, Sacramento, 1958 and Law Enforce- United States Department of Interior, Office of Educa- ment Training in California, Calif. Peace Officer Train- tion 1937, Vocational Education, Bulletin No. 192, ing Publication No. 72, Calif. State Dept. of Education, pp. 8-9. Sacramento, 1959. 2pTbid., p. 63 "In cooperation with state municipal 23 TRAINING FOR POLIcE SERvIcE, 1938, U. S. leagues, instruction was given to police officers in Dept. of Interior Office of Education, Voc. Div. Bul- Arkansas, Colorado, Illinois, Indiana, Kansas, Ken- letin No. 197, p. 3. (Italics added.) tucky, Minnesota, Nebraska, New York, Ohio, Okla- 24 V. A. LEONARD, POLICE ORGANIZATION AND homa, South Dakota, Texas, Virginia, West Virginia, MANAGEmEzNT, 1951, p. 429. and Wisconsin." PROFESSIONALIZATION OF LAW ENFORCEMENT

district attorneys, etc.; in spite of the books, the pre-service training, is the opportunity that it many articles and reports which had been written affords to eliminate, during the school period, concerning the subject-in 1949 Bruce Smith those candidates who may be morally, mentally, wrote that "even the most casual observer of physically, or temperamentally unsuited for police police training facilities must be impressed by work".n0 their confused relationship and by the chaotic "What is sorely needed in this country are disturbances which afflict them at frequent in- Schools of Criminology with curricula suited to tervals. Even today, entire states are without a the requirements of students who intend to prepare single police training unit worthy of the name, for entry into one of the several branches of law and others with police schools conducted on such enforcement. Because there is a dearth of factual a casual basis, and for such brief and uncertain material to guide them in their decisions, legislators periods as to have little influence in raising the should insist that state-supported colleges must general level of police service. In most instances, create Schools of Criminology.... When grad- the fault lies in the fact that small forces cannot uates in sufficient number become available, the support training facilities of any kind, and that lawmakers should enact legislation which would even in some of the larger police establishments establish professional standards for entrance into recruits are inducted at irregular and unpredict- every branch of law enforcement.3' able intervals."'2 Two years after August Vollmer made his more In the same year that Bruce Smith's book was recent observations and recommendations con- published, August Vollmer wrote, concerning police cerning the need for establishing college training training: "The number of hours spent in training of law enforcement officers, and state legislation recruits will vary, of course, from city to city. which would establish professional standards for In some communities a few days field work under law enforcement officers, Dr. V. A. Leonard, the supervision of an older officer or sergeant may Chairman of the Washington State College, De- be all the preliminary training that the neophyte partment of Police Science, also emphasized "the will receive before he is thrust upon the public need for the establishment of professional cur- as a fully prepared official capable of handling ricula in universities and colleges affording specific all of the problems that require police attention, training of men and women for entry into this on the other hand three months intensive training strategic branch of the public service" and stated is the rule in some cities."2s that ". . .police entrance standards must provide "There is a persistent but false belief, shared for the selection of men possessing a superior by the public and the police, that practical ex- degree of intelligence in order to assure satis- perience gained in the traditional procedure suffi- factory performance in positions to which the dently enables the policeman to deal with all of candidate may advance later".n the crime and the behavior problems that are With reference to in-service trainingand regional presented to the police for solution. It will suffice in-service training schools, Leonard, although to say that this erroneous idea has postponed the naming a number of colleges and universities day when professional standards will be established "who have made notable contribution to the or- 29 for entrance into the police service." ganization of in-service training facilities on a zone With reference to pre-service training by police, or regional basis", said, "in general, however, Vollmer, in 1949 selected Washington State Col- regional in-service training schools have not meas- lege, Michigan State College, San Jose State and ured up to the results anticipated by their spon- Fresno State Colleges in California, the University sors and their failure to meet the training needs of California at Berkeley, and the University of of the police becomes increasingly manifest. The Indiana, as "trail-blazing" institutions which short sessions of from three days to three months "will probably be followed by others when the are inadequate".n public becomes fully conscious of the values to be "In-service training was never intended nor derived from a socialized and professionalized po- can it be expected to train a man professionally lice service.*... One of the by-products of police 3Ibid., p. 373. 2 BRucE SrmH, POLICE SxSTMS IN TIE UNITED 1Ibid., p. 373. STATES, 1949, p. 296. 32V. A. LEONAiD, Poracx ORGANIZATION & MAN'- 28AUGUST VOT.T.ER, TnE CPa.mqAL, 1949, p. 354. AGEMENT, 1951, pp. 108-109. 29 Ibid., p. 365. (Italics added.) '3Ibid., p. 148. GEORGE H. BRERETON [Vol. 51

for a given field ... the position of the police is diplomas awarded only to those candidates who that of a profession, it is not a trade. The basic successfully pass written examinations." 36 function of in-service training is to help profession- "The only reasonable solution to the problem ally trained men keep abreast of new develop- of training recruits, is for the various states to ments in the field. To expect more is to court create training schools for police conducted by 34 failure. each state and manned by competent instructor Basically, Dr. Leonard's statements with refer- personnel drawn from police departments, colleges ence to in-service training are correct, particularly and private industry."-r concerning its primary objectives of upgrading, I am sure that no one will disagree that J. Edgar or presenting specialized or refresher courses to Hoover, from the time of his appointment in 1924 personnel who are assumed to have had basic as Director of the Federal Bureau of Investigation, law enforcement training. However, we cannot until the present, has been an outstanding leader overlook the fact that in the absence of mandatory in the professionalization of law enforcement and requirements that all law enforcement officers in the field of training. In an interview in 1954 complete an adequate pre-service trainingprogram, he had this to say relative to its importance: prior to employment in law enforcement agencies, "The efficiency of law enforcement today is com- in-service trainingno matter how abbreviated, does mensurate with the degree of training of its officers. some good, and a well planned and organized Only through modern police training can we keep in-service training program is not only valuable, abreast of the times in the uncreasing fight against but necessary. In addition to these facts it is lawlessness... police work by untrained men... is as obsolete as the practice of medicine by sor- believed that geographic expansion of in-service 38 cery. training, has had, and will continue to have a "Although the FBI is a federal law enforcement very important effect upon the acceleration and agency concerned only with the investigation of the demand for pre-service law enforcement 35 crimes coming under its jurisdiction ... the ideal- training. ism, the ability, the selection, the training, the leader- On the other hand, supporting the belief that ship, the integrity, and the education of the Director in-service training is only a "stop-gap" until we and his Special Agents has been an inspiration reach the ultimate goal of universal college pre- to every sincere law enforcement officer who has service law enforcement training and certification striven or who is striving for the same goals in before employment, Charles F. Sloane, former his own organization and has made a lasting im- New York State Trooper, has said that "the at- pression upon both the police service and the tempts made to train our police in in-service public citizen." 39 training schools, held sporadically with sessions of two to three hours a day for several days, with NEED FOR "PROFESSIONALS" IN LAW attendance at the sessions the only criteria for ENFORCEMENT receiving diplomas, is a totally inadequate method During the sixty-year period under considera- of teaching police work .... In-service training tion we have seen a gradual but generally increas- schools staffed with competent instructors can ing interest in and development of law enforce- be of value to police departments in imparting ment training. Although this has not been various skills and knowledges to men after proper constant, and from time to time, as indicated by indoctrination into the police field via full-time, various writers of the period, it has temporarily

comprehensive recruit training schools, if proper HCHRLEs F. SLOANE, State Academies for Police,- safeguards are maintained at such sessions and JOURNAL OF CRnaNAL LAW, CR.IINOLOGY & POLICE 34 SCIENCE, Vol. 45, No. 6, Mar.-Apr., 1955, p. 730. Ibid., p. 150. 1 Ibid. pp. 730-731; and A. F. BRANDsTETrER, See FRANK M. BOOLSEN, DRECTORY OF UNIVER- Director, School of Police Administration and Public sInT & COLLEGE CRIMINOLOGY PROGRAMS, 1950 and Safety, Michigan State College, Michigan's Answer A. C. GEasmAn, Law Enforcement, Education & Train- to Its Law Enforcement Training Needs, THE POLICE ing in the United States, THE POLICE CHIEF, Oct. YEAR Boox, IACP, 1958, p. 35. 1957, pp. 22, 24, 26, 28, also see G. DOUGLAS GOURLEY, H ALBERT DEUTSCH, Is Your Police Force Obsolete? In-Service Training of Policemen by University & COLLIERS, October 1, 1954. Colleges, THE JomNAL OF CRIMNAL LAW, CEnunhoL- 39GEORGE H. BRBMRTON, Police Work Is A Profes- OGY & PoLIcE ScIENCE, Vol. 44, No. 2, July-Aug. sion, CALIFoRNIA PEACE OFFICER, Jan.-Feb., 1955, 1952, pp. 220-340, incl. Vol. 5, No. 3, p. 24. PROFESSIONALIZATION OF LAW ENFORCEMENT declined in some areas and incertain departments, Association, we find the following statement: particularly during the past twenty years, and "Police work today is approaching the status of a more so in the last ten years, "slowly but with profession. While it may be years before this ob- increasing emphasis and momentum, the move- jective is achieved the educational preparationand ment is growing to elevate educational require- on-the-job training of police officers will materially ments for the law enforcement vocation".A contribute to it".41 In a subsequent section the Influenced in no small degree by the persons writer also says "... advanced in-service law whom I have previously mentioned and other enforcement training such as that at the University police administrators, educators, and writers, and of Southern California, holds great promise for by the activities and/or the reports of associations ultimate professionalizationof police service"." and crime investigation committees, the goal Albert Deutsch writing in the October 1, 1954 established today, by a great many leaders in the issue of Collier's Magazine, although extremely field of law enforcement, is complete professionaliza- critical of law enforcement training in many police lion of the law enforcement service. departments, said: "The whole professionalizing Although a few individuals, recognized at an process presages a period, not distant when the early date that the demands placed on law en- policeman, the keeper of the peace, will possess forcement and the variety of the duties and knowl- the dignified and rewarding status long withheld edge required of its officers, seemed to indicate from an honorable public vocation ... with the the eventual requirement that all officers would lag in training, it is remarkable that so many men have a college education in law enforcement and women of professional caliber are already in 45 prior to their employment,4' it has only been in police work". comparatively recent years that so many law However, taking sharp issue with "the writings enforcement officials and educators are in agree- of so many 'police experts' that members of police ment that law enforcement is, or should be, a forces are now either on the verge of entering the profession, and that in order to attain such status 'police profession', or have already entered through it is necessary that the education and training of an open door and are accepted as professional the law enforcement officer be comparable to that men.., that the only method by which police required of a number of other "professions". work, in its entirety, can ever hope to attain the "Certainly", says Dr. Germann, "a four-year status of a profession is to squarely face the facts technical education is not necessary for a young concerned therein, set the goal and then, step by man who wishes a law enforcement career at the step, eliminate the obstacles confronting them".46 patrolman level, and who will pursue it according Sloane points out the fact that although the to traditional fashion... It is the broad education "... professions all require a minimum of four of the police officer that is important as long as years of college.., the minimum requirements ' police leadership is 'up from the ranks'."4 in the police field today (1954) vary.., from Although there are, no doubt, many writers 'graduation from high school' to as low as ability whose thoughts concerning professionalization to read and write the English language' ".4 have not come to my attention, there are a few Granted that there is a low, and a wide range statements written in recent years, particularly in minimum educational requirements for entrance to the lay enforcement profession, and that during and since 1954, which are worth repeating. there In Municipal Police Administration, published are difficult obstacles, such as residential restric- tions, apathy, fear of being supplanted, jealousy of in 1954 by the International City Managers' another's accomplishments, and desire for political '"A. C. GERUANN, Law Enforcement Education, control or patronage to overcome, it was not too op. cit., p. 22. 4t MRS. JOIN P. BUALDA, Director of the 1st Institute many years ago that the only requirement for of Police Administration at Riverside, California 1929, practicing the profession of law was to hang out said: "It is an amazing thing that we maintain Annapo- lis and West Point to train officers against a possible one's shingle! foreign aggressor and that we have no comparable 41Op. cit., p. 187. (Italics added.) training for our officers in the war against crime, which 4 Ibid. p. 78. (Italics added.) is a constant thing, costing infinitely more." Proceed- 41ALBERT D-uTscH, 46 op. cit. ings of the 1st Institute of Police Administration, No. CHARLES F. SLOANE, Police Professionalization, 12-13, 1929, in Occasional Papers of Riverside Jr., JouRNAL OF CRanhNAL LAW, CRIMINOLOGY AND POLICE College,42 Vol. 5, No. 1, March 1930, p. 41. SCIENCE, Vol. 45, No. 1, May-June 1954, pp. 77-78. A. C. GERmANN, op. cit., p. 22. 4TIbid., p. 78. GEORGE H. BRERETON [Vol. 51

Dr. Germann, who received his police experi- fessions we find that a first requirement is train- ence in the Los Angeles Police Department, ing... the second requirement to be met before names "... . some twenty professional groups, in- entering a profession is a license or certificate based cluding law, medicine, engineering, architecture, on standards of competence.., this is where we teaching, veterinary medicine, pharmacy, etc... run into a major difficulty in the police profes- which have set minimum academic requirements sion .... The third requirement is one which is ...to improve the quality and economic status within our grasp, we need a Code of Ethics ac- of their practitioneers in order to protect the pub- cepted by all members of our profession... we lic, and in order to enhance their professional need some means of seeing that this code is not status... the police service well-deserves the violated.., we have a Code of Ethics adopted dignity and status that such accredited programs by the IACP, by the National Conference of give". "It is interesting to note.., that in the Police Associations and by hundreds of others .... State of Michigan the profession of pharmacy It can be adopted by every police department. has progressed in 30 years from NO educational If can be enforced by each chief of police."" requirements to a SIX YEAR training require- In California, for many years, we have promoted ment."4' the upgrading of officers by training, as well as Chief of Police Fred Hess, of Bloomfield, New through other means. In making this statement, Jersey, agreed in 1957 that "Police service may I do not wish to imply that similar activities have well not be considered as a profession until such not been taking place in other states, nor that we time as well developed training programs are have reached the goal which has been indicated provided for the police that are comparable to by Inspector Ashenhurst. We do have the same those that prepare persons for the recognized Code of Ethics to which he referred, but I cannot professions". 49 But Chief Benard C. Brannon, of say whether or not it has been adopted by each of Kansas City, Missouri, in the same year said: our 362 police departments. It has been adopted "We all know that the demands upon the police- by some of them and has been adopted by our man are so varied and great that his work has State Peace Officers' and our State Sheriffs' Asso- ascended to a true professional calling of its own, ciations. one that matches any of the honorable professions In training we have made great progress, both in the need for exceptional study and training in the in-service and pre-service fields. However, requisites for membership... The policeman did it should be realized that there is still a difficult not create this new profession; it was thrust upon uphill road to travel before officers will be required him. Proof that he did not create the new profes- to possess a certificate to practice the profession sion is that in large measure he does not, and is of law enforcement as is now required of those not prepared to discharge the duties of his office. persons in other professions. Although many of our This is not to disparage our current efforts, but is law enforcement agencies do require a minimum only a frank acknowledgement of the existence of education of graduation from high school, or its a taxing and challenging profession without suf- equivalent, and a few give credit for additional ficient professional people to practice it".50 "The education, we are still a long way from the goal combination of two factors is necessary for our of a college diploma. professional success: (1) We must create the desire In recent years much thought, discussion, and on the part of young people to study policing, (2) attention has been given to the establishment of we must persuade our colleges and universities minimum standards for our California law en- to establish law enforcement curriculums and forcement officers. Particularly through the efforts assist them in their endeavors."-" of the Peace Officers' Research Association of Inspector H. Ashenhurst, of the Dallas, Texas, California, and the Peace Officers' Association of Police Department says: "If we analyze the pro- the State of California, an attempt was made, starting in 1954, to establish a "Professional Law 'sA. C. GESmANN, op. cit., p. 24. 49 FpmD HEss, Police Training in Small Communities, Enforcement Act" within the Business and Pro- JoURNAL OF CIuiNA. LAW, CRIMINOLOGY AND POLICE fessional Code of California which would have ScIENCE, Vol. 49, No. 1, p. 75. 0 BENARD C. BANNoN, Into Tomorrow, (address 52 PAuL H. ASHENHuEsT, The Goal: A Police Profes- to 64th Annual Convention IACP, Honolulu, 1957) THE sion, JouRNA oF CmnriNAL LAW AND CRIMINOLOGY POLICE YEAR BOOK, 1958, p. 26: AN POLICE SCIENCE, Vol. 49, No. 6, Mar.-April, 15Ibid., p. 28. 1959, pp. 605-607. 19611 PROFESSIONALIZATION OF LAW ENFORCEMENT established minimum standards and provided a mental and other types of screening should certificate or license for the law enforcement officer take place here.) who could meet these standards. A "Minimum 2. Possession of a certificate, issued upon state Standards Bill", which was prepared and intro- authority by a Board or Commission, based duced in the. 1957 session of the State Legislature upon an examination, attesting to the fact was defeated by the League of California Cities that the applicant is qualified and is trained and the State Supervisors' Association because in law enforcement. of its mandatory provisions pertaining to police 3. Elimination of all local residence require- and sheriffs' departments and alleged interference ments within a state for employment of such with "home rule". However, in the 1959 regular "qualified" personnel. (Residence require- session a California Peace Officers' Standards and ments are outmoded, and in a number of our Training Act, (Chapter 1823, Statutes, 1959, largest police departments in California, i.e., Penal Code Sec. 13500-13523) was passed by the Los Angeles, San Francisco and San Diego, Legislature, with the support and assistance of the are no longer required of an applicant for League of California Cities, since cities and coun- employment.) ties are not requiredto participate in the program, 4. Establishment of the requirement, when but may do so on an optional basis. sufficient "certificated" recruits are available, This Act established a Peace Officers' Training (which should include not only the minimum Fund, the money for which comes from 5% assess- education but also the experience required ment on all fines collected by California courts for the particular position) by all towns, for criminal offenses, except fines collected for cities, and counties, that all persons who are traffic or fish and game violations. The fund, to be employed in law enforcement be which is administered by a Commission of nine trained and in supervisory positions, be members and an Executive Secretary, is to be trained as indicated in #1. used for training purposes, under rules established 5. Development of a professional "career" just by the commission. This program, although class of law enforcement officers receiving considerable getting started, appears to offer salaries, retirement and other benefits which promise that law enforcement will receive in- are commensurate with the education, duties, creased upgrading in the near future. and responsibilities demanded of the pro- To close this discussion I shall outline the (Opportunities for advancement in requirements which are apparently necessary if fession. law enforcement is to achieve recognition as a the police field should be just as available to profession. capable police administrators, as they are to 1. Satisfactory completion of a four-year penologists, city managers, engineers, finance college course in law enforcement training, officers, educators, and many others in the leading to a Bachelor's Degree. (Physical, public service.)