Evaluation of the New York City Police Department Firearm Training and Firearm-Discharge Review Process
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Evaluation of the New York City Police Department Firearm Training and Firearm-Discharge Review Process Bernard D. Rostker, Lawrence M. Hanser, William M. Hix, Carl Jensen, Andrew R. Morral, Greg Ridgeway, Terry L. Schell Center on Quality Policing A RAND INFRASTRUCTURE, SAFETY, AND ENVIRONMENT PROGRAM The research described in this monograph was conducted under the auspices of the RAND Center on Quality Policing within the Safety and Justice Program of RAND Infrastructure, Safety, and Environment (ISE). Library of Congress Cataloging-in-Publication Data Evaluation of the New York City Police Department firearm training and firearm- discharge review process / Bernard D. Rostker ... [et. al.]. p. cm. Includes bibliographical references. ISBN 978-0-8330-4416-7 (pbk. : alk. paper) 1. Police shootings—New York (State)—New York—Evaluation. 2. Police training—New York (State)—New York—Evaluation. 3. Firearms—Use in crime prevention—Study and teaching—New York (State)—New York—Evaluation. 4. New York (N.Y.). Police Dept.—Evaluation. I. Rostker, Bernard. HV8148.N52E83 2008 363.2'3—dc22 2008010909 The RAND Corporation is a nonprofit research organization providing objective analysis and effective solutions that address the challenges facing the public and private sectors around the world. RAND’s publications do not necessarily reflect the opinions of its research clients and sponsors. R® is a registered trademark. © Copyright 2008 RAND Corporation All rights reserved. No part of this book may be reproduced in any form by any electronic or mechanical means (including photocopying, recording, or information storage and retrieval) without permission in writing from RAND. Published 2008 by the RAND Corporation 1776 Main Street, P.O. Box 2138, Santa Monica, CA 90407-2138 1200 South Hayes Street, Arlington, VA 22202-5050 4570 Fifth Avenue, Suite 600, Pittsburgh, PA 15213-2665 RAND URL: http://www.rand.org/ To order RAND documents or to obtain additional information, contact Distribution Services: Telephone: (310) 451-7002; Fax: (310) 451-6915; Email: [email protected] Preface For the New York City Police Department (NYPD), every time a police officer’s weapon is fired, except for circumstances when it is fired (or discharged) at a firing range, the officer makes a report and the department undertakes an investigation to determine the circumstances surrounding the incident. In early January 2007, New York City Police Commissioner Raymond W. Kelly asked the RAND Corporation to under- take an “objective, comprehensive assessment of the New York Police Department’s (NYPD) firearms training and firearms discharge review process” (NYPD, 2007b). This monograph recommends ways in which the NYPD can reduce firearm discharges generally and inappropriate discharges in particular. The RAND Center on Quality Policing This research was conducted under the auspices of the RAND Center on Quality Policing within the Safety and Justice Program of RAND Infrastructure, Safety, and Environment (ISE). The center conducts research and analysis to improve contem- porary police practice and policy. The mission of ISE is to improve the development, operation, use, and protection of society’s essential physical assets and natural resources and to enhance the related social assets of safety and security of individuals in tran- sit and in their workplaces and communities. Safety and Justice Program research addresses occupational safety, transportation safety, food safety, and public safety— including violence, policing, corrections, substance abuse, and public integrity. Ques- tions or comments about this monograph should be sent to the project leader, Bernard Rostker ([email protected]). Information about the Safety and Justice Pro- gram is available online (http://www.rand.org/ise/safety), as is information about the Center on Quality Policing (http://www.rand.org/ise/centers/quality_policing/). Inqui- ries about research projects should be sent to the following address: Greg Ridgeway, Acting Director Safety and Justice Program, ISE RAND Corporation iii iv Evaluation of the NYPD Firearm Training and Firearm-Discharge Review Process 1776 Main Street, P.O. Box 2138 Santa Monica, CA 90407-2138 310-393-0411, x7734 [email protected] Contents Preface ................................................................................................. iii Figures ................................................................................................. ix Tables .................................................................................................. xi Executive Summary ................................................................................xiii Abbreviations ......................................................................................xxvii CHapteR ONE Introduction ........................................................................................... 1 Background and Study Objective .................................................................... 1 Study Approach ........................................................................................ 2 Organization of This Monograph .................................................................... 4 CHapteR TWO Firearm-Discharge Policy and Experience in New York City ................................ 7 Introduction ............................................................................................ 7 Use of Force Is an Essential Part of Policing ........................................................ 7 Use of Force Is Rare .................................................................................... 8 Matching Force to the Nature of the Situation ..................................................... 9 Use of Deadly Force: A Changing Paradigm ......................................................10 Efforts to Control the Use of Deadly Force ........................................................11 NYPD Policy on the Use of Deadly Force .........................................................12 Firearm-Discharge Statistics .........................................................................13 CHapteR THREE Training ...............................................................................................17 Introduction ...........................................................................................17 Overview of NYPD Training ........................................................................17 Recruit Training ....................................................................................18 Field Training Program ........................................................................... 22 In-Service Training ................................................................................ 23 Method of Assessment ............................................................................... 24 v vi Evaluation of the NYPD Firearm Training and Firearm-Discharge Review Process A Framework for Assessing the Quality of Training .......................................... 24 Application of the Framework .....................................................................25 Assessment of Recruit Training ...................................................................25 Options to Improve Recruit Training ............................................................31 Observations and Assessment of In-Service Training.............................................35 In-Service Baton Training .........................................................................35 Refresher Firearm Training and Requalification ................................................35 Summary and Recommendations ...................................................................37 Basic Recruit Training ............................................................................ 38 In-Service Training .................................................................................39 CHapteR FOUR The Firearm-Discharge Investigation and Review Process ..................................41 Introduction ...........................................................................................41 Current Procedures ...................................................................................41 Assessment of the Process ........................................................................... 42 Recommendations ................................................................................... 44 Focus of the Firearm-Discharge Investigation Should Be Expanded to Include a Formal Review of the Tactics Used ......................................................... 44 There Needs to Be a Formal Lessons-Learned Process .........................................45 There Is a Need to Better Adhere to Stipulated Formats .......................................45 There Is a Need for Synthesis in Final Reports ................................................. 46 CHapteR FIVE Analysis of Factors Associated with NYPD Officers Discharging Their Firearms ......47 Introduction ...........................................................................................47 Data Sources .......................................................................................... 48 Methods ................................................................................................49 Findings ............................................................................................... 50 Summary ...............................................................................................55