Lengthening the Stride

Employing Peace OfficersFrom Newly Arrived Ethnic Groups

National Crime Prevention CouncilWashington, D.C.

LENGTHENING THE STRIDE:

Employing Peace Officers FromNewly Arrived Ethnic Groups

National Crime Prevention CouncilWashington, D.C.

This publication was developed by the National Crime Prevention Council (NCPC) through funding from the Office ofRefugee Resettlement, U.S. Department of Health and Human Services, under an Interagency Agreement with the Bureau ofJustice Assistance, Office of Justice Programs, U.S. Department of Justice. NCPC received the funding through CooperativeFunding Agreement No. 89-DD-CX-K002 with the Bureau of Justice Assistance. Opinions are those of NCPC or citedsources and do not necessarily reflect the policies or positions of the U.S. Department of Justice of the U.S. Department ofHealth and Human Services.

The Bureau of Justice Assistance is a component of the Office of Justice Programs, which also includes the Bureau of JusticeStatistics, the National Institute of Justice, the Office of Juvenile Justice and Delinquency Prevention, and the Office forVictims of Crime.

The National Crime Prevention Council is a private, nonprofit, tax-exempt [501(c)(3)] organization whose principal missionis to enable people to prevent crime and build safer, more caring communities. NCPC publishes books, kits or camera-readyprogram materials, posters, and informational and policy reports on a variety of crime prevention and community-buildingsubjects. NCPC offers training, technical assistance, and national focus for crime prevention: it acts as secretariat for theCrime Prevention Coalition, more than 120 national, federal, and state organizations committed to preventing crime. It alsooperates demonstration programs and takes a major leadership role in youth crime prevention. NCPC manages the NationalCitizens' Crime Prevention Campaign, which includes the McGruff "Take A Bite Out Of Crime" public service advertisingand is substantially funded by the Bureau of Justice Assistance, Office of Justice Programs, U.S. Department of Justice.

Copyright 1995 National Crime Prevention Council

This booklet may be reproduced in whole or in part with proper attribution as long as the reproduction is for nonprofit useand not for sale or resale.

Printed in the United States of America

November 1995

ACKNOWLEDGMENT

This publication spotlights the work of hundreds of people. It is impossible to thank them all,except insofar as we make clear two vital messages - good working relationships can be built betweenlaw enforcement and refugee groups, and refugee group members can and should become swornmembers of law enforcement agencies. But some individuals deserve particular acknowledgment.

Sarah Hay, a consultant to the National Crime Prevention Council (NCPC), both researched theissue and drafted the text. Maria Amato, as an NCPC intern, assisted with research and interviews.Jean O'Neil, Managing Editor of NCPC, provided editing and production assistance, together withMarty Pociask, production editor. Jonann Wild was the program manager for NCPC.

The partnership that funded this publication - and much community-level work that informed it -brings together the Office of Refugee Resettlement (ORR), U.S. Department of Health and HumanServices, and the Bureau of Justice Assistance (BJA), Office of Justice Programs, U.S. Department ofJustice. Working with the National Crime Prevention Council, these agencies helped break newground in strengthening relationships between law enforcement agencies and members of refugeecommunities around the country. Nancy Iris ably represented ORR; Donna Schulz and later LouiseLucas served as Program Manager for BJA.

At NCPC, John A. Calhoun, Executive Director, and Maria Nagorski, Deputy Executive Director,readily encouraged and facilitated this work. Lavinia Limon, Director of ORR, repeatedlydemonstrated her concern about this issue and her commitment to aiding refugees in becomingcomfortable with the customs and practices of their new homeland. At BJA, Nancy E. Gist, Director,and Robert H. Brown, Jr., Chief, Crime Prevention Branch, encouraged collaboration and builtsupport for this project.

To develop this document, we worked with many people. Their comments contributed greatly tothe substance and structure of the book, and they have our sincere gratitude for their work andwillingness to share their ideas. Contributors include: Captain Russell Rice, Placentia, California,Police Department; Kathleen Hurley, City of Oakland, CA, Police and Fire Testing; Officer NguyenVan Trong, Biloxi, MS, Police Department; Officer Gaylord Gee, California Highway Patrol; Lt.Rick Holton, Dade County, Florida, Metro Police Training Bureau; Lt. A.J. Key, Arlington, TX,Police Department; Jim Kavinia, FBI Training Academy, Quantico, VA; Officer Tram Tran, Boston,MA, Police Department; Kim Kohlhepp and Ray Galvin, International Association of Chiefs ofPolice, Alexandria, VA; Julia Gonzalez, San Francisco, CA, Police Department RecruitmentCoordinator; Chief Robert Shadley, Willows, CA, Police Department; Don "D.K." Abbott, SanDiego,

CA, Police Department (Ret.); Suzanne Foucault, Executive Director, San Diego Regional TrainingCenter; Specialist Bruce Hartman, Fresno, CA; Dave Spisak, California Commission on Peace OfficerStandards and Training; Officer Thomas Lee, Willows, CA, Police Department; Inspector JeffreyDavidson, Lowell, MA, Police Department; Richard Johnson, City Manager, Lowell, MA; SergeantJake Bise, Maryland-National Capital Park Police; Officer Doan Thaoanh, Portland (OR) PoliceBureau; Jeff Pauley, Police Executive Research Forum, Washington, DC; David Yang, St Paul, MN,Police Department; Joe Harpold, FBI Training Academy, Quantico, VA; and Professor Gary Weaver,American University, Washington, DC.

TABLE OF CONTENTS

FOREWORD................................................................................................................................ i

Chapter 1: Introduction .................................................................................................................1 The Changing Cultural Picture ................................................................................................1 The Setting: Present and Projected Ethnic Demographics........................................................2 Minority Hiring .......................................................................................................................3 Newcomer/Police Relations: Past and Present...........................................................................4 How This Book Will Help.......................................................................................................5

Chapter II: Hiring Newcomers: The Benefits Are Real ..................................................................9 Newcomer Hiring and Community Policing ............................................................................9 Economic Benefits of Newcomer Hiring..................................................................................9 Ethnic Minority Hiring Can Increase Safety ............................................................................10 Intangible Benefits..................................................................................................................11

Chapter III: Building Trust: The First Step...................................................................................13 Three Levels of Trust..............................................................................................................13 Trust: Starting in the Neighborhood .......................................................................................15

Chapter IV: Recruiting, Hiring, and Retaining: Steps Toward Success ........................................17 Legal Base for Non-Discrimination in Hiring..........................................................................18 Ethnic Minority Recruitment Efforts .......................................................................................18 Variations and Constants in Selection .....................................................................................22 Specific Problems Affecting Selection, Hiring, and Training...................................................27 Solutions That Are Working...................................................................................................30 Creative Hiring Experiences....................................................................................................36 On-the-Job Anxiety ................................................................................................................37 One Community's Experience.................................................................................................38

Chapter V: Conclusions and Suggestions ....................................................................................41

Sources of Information and Assistance..........................................................................................45

Recommended Reading for Further Information ...........................................................................46

FOREWORD

This book is one result of aformal multi-year partnershipbetween the Office of RefugeeResettlement (part of the U. S.Department of Health andHuman Services) and theBureau of Justice Assistance(part of the U. S. Department ofJustice) to explore and helpimprove the relationshipbetween law enforcement andrefugees who have resettled inthe U.S. It also reflects adynamic informal partnershipamong sites funded by theOffice of Refugee Resettlement;law enforcement agencies; andrefugees, immigrants, and othercommunity residents throughoutthe nation who are workingtogether to help improve lawenforcement's delivery ofservices to all members of thecommunity.

An earlier product of thisfederal partnership, Buildingand Crossing Bridges: Refugeesand Law Enforcement WorkingTogether,1 provides a clearblueprint for a cooperative,mutually beneficial relationshipbetween refugee and lawenforcement communities. Butcooperation and harmony,though necessary, are notsufficient to meet the goal ofimproving safety in allneighborhoods. Communitiesfound that if law enforcement

agencies are to serve and protectthe entire communityeffectively, it is important thatthey reflect the values andcomposition of the communitiesthey serve.

Lengthening the Stride takesthe newcomer/police partnershipa step further, laying out waysthat law enforcement can recruit,hire, and retain members ofethnic minority populations.Because the Federal agencies1

partnership originally focusedon the many refugees fromSoutheast Asian countries whoarrived in the U.S. in the 1970sand 1980s, this book drawschiefly on specific examplesfrom the Vietnamese, Laotian,Cambodian, and Hmongcommunities to address theimportant opportunities, ben-efits, issues, challenges, andinnovative solutions found inhiring officers from these refu-gee groups.

The principles in this bookare not exclusive to hiring fromSoutheast Asian groups.Although it has been theexperience of some agencies thatthe process of hiring newcomersfrom some Asian countriespresents a more complicatedarray of cultural

challenges than hiring thosefrom other non-U.S. areas, thesuccessful methods of hiringoutlined here can be modified toapply to many other groupssettling in the U.S. As with pastwaves of immigration, the facesand languages may differ, butthe issues and experiences oftenare similar.

It is critical that law en-forcement agencies understandthe measurable benefits fromhiring ethnic minority swornofficers are only one part ofmeeting a multi-facetedchallenge. Vigorous recruiting,hiring, and retention programsmust be accompanied by equallyvigorous and committed culturaldiversity training programs forofficers and staff. Building andCrossing Bridges emphasizesthe importance of cross-culturaleducation and underscores thefact that for true harmony tooccur, builders of culturalbridges must meet halfway.Lengthening the Stride helpslaw enforcement strengthen andenrich its service delivery to thecommunity by using cross-cultural education as a buildingblock.

This book is a valuableguide for veteran and newlyhired non-native officers, as wellas for law enforcementexecutives and trainers, policeacademy staff, and communityresidents. It contains practicalinformation for recruiting and

training officers, communityservice officers from newcomergroups, state and local refugeeand assistance groups andimmigration officials, and citymanagers and otherpolicymakers in communitieswith large ethnic minoritypopulations.

The Introduction outlinesthe issues of hiring officers fromnewcomer groups within a briefframework of current statistics.This chapter also provides anoverview of current minorityemployment guidelines andpractices. The last sectionexplains how this book will helplaw enforcement andcommunity members with thehiring process.

Chapter II presents the wide-reaching benefits of hiring fromnewcomer populations. ChapterIII emphasizes the critical role ofmutual trust between lawenforcement and newly settledgroups. Without a solidfoundation of trust, efforts torecruit, hire, and retain non-native officers will almostcertainly be unsuccessful.

Chapter IV details importantsteps that have helpedcommunities overcome barriersin hiring non-native officers.Among these barriers arechallenges in written and oralcommunication, police testing,practical skills such as operat-

Vigorous recruiting, hiring,and retention programs mustbe accompanied by equallyvigorous and committedcultural diversity training.

ing a motor vehicle, differingcultural norms for such conceptsas authority and time, andpressures and anxieties that cancompromise professionalperformance.

Chapter V reviews sug-gestions for a successful hiringeffort and lists practicalresources, including people withestablished track records inhiring from refugee and im-migrant groups. Their experi-ences can serve as a valuablestarting point for furtherdiscussion and action. Thebook concludes with an ex-tensive list of publications thatcan provide further information.

Several terms in this bookare used interchangeably: "non-native," "ethnic minority,""newcomer," and "foreign-born"all refer to those residents of theU.S., some of whom havebecome naturalized Americancitizens, who moved here asimmigrants or refugees. Thespecific term " ethnic minority,"in our context, does not includethose who are many generationsremoved from immigrant statusand who have probablyacculturated to U.S. norms,laws, and traditions.

A final note on terminology:Most of the Southeast Asianindividuals cited in this book are"half generation" newcomers, a

term used by faculty of atraining curriculum entitled"Introduction to Law Enforce-ment for Southeast Asians,"developed by the CaliforniaCommission on Peace OfficerStandards and Training(POST).2 The term "half generation" designates the now-grown children of refugee par-ents who lived for years inrefugee camps before fleeing tothe U.S. in the 1970s followingthe end of the Vietnamese war.These children, born inSoutheast Asia or in the campsbut maturing in the UnitedStates, represent a bridgebetween their native and theiradopted cultures. Using thisterminology, their children, bornin the U.S., are first-generationSoutheast Asian Americans.

As this book goes to press,the principles of affirmativeaction are under review. Whilethis book does not advocate foreither side of that issue, it doesurge that institutions such as lawenforcement strive to accommo-date the cultural diversity that isa vital and enriching part of lifein this country. The bestargument for hiring from amongnewcomer groups does not reston such legal requirements asaffirmative action; it is afundamental principle of goodpolicing.

“... [S]ome progressing police agencies have begun to fostersegments of their communities under the broad umbrella of

community oriented policing. While these community empowerment programs may be a step in the right direction,

the length of the stride may not be sufficient. "

Capt. Russell Rice, Placentia (CA) Police Department, in"Changing Demographics: Impact on the Role of Police"

CHAPTER 1 Introduction

The Changing CulturalPicture

The demographics of manycommunities in the UnitedStates are changing rapidly anddramatically. Legislativemodifications have opened theU.S. to growing numbers ofpeople from countries aroundthe world. Some areimmigrants, settling in a newcountry to seek better economicopportunities. Others arerefugees, escaping fear andpersecution in their native landssuch as Vietnam, Laos,Cambodia, Haiti, Romania, theformer Soviet Union, andEthiopia. Both groups ofnewcomers face formidableobstacles as they resettle in anation that depends onproficiency in English for socialand economic success; is basedon a system of laws that iscomplex and may be difficult tounderstand; and is rich withcultural customs, traditions, andnuances that may seem bewil-dering.

Simultaneous with thesechanges in community demo-graphics, many law enforcementagencies are burdened with highrates of serious crime, often

within Southeast Asian andother ethnic minority enclaves intheir communities, and stagnantor shrinking resources. They arefrustrated with efforts to gainaccess to these newcomers whospeak and act "differently."

As was true with newcomers inearlier periods of immigration,many recent immigrants andrefugees have tended to remainin physical and culturalisolation, leaving themvulnerable to crime and vic-timization both from membersof their own ethnic group andthe indigenous community.When they have had occasion tointeract with police, the resultshave often been alienating andlaced with misunderstanding.Despite the best efforts of indi-vidual law enforcement officersand community residents,relations between the cultures aresometimes more strained afterthere has been apolice/newcomer encounter.

In an attempt to address theneeds of newcomer communitiesmore effectively, some agencieshave hired translators andcommunity service officers(CSOs) with the goal

Many recent immigrants andrefugees have tended toremain in physical andcultural isolation.

2

The 1990 Census showed thatthe United States is home tonearly 20 million foreign-bornresidents, of whom 7.3 millionare described as Asian/PacificAmerican.

of strengthening trust betweenpolice and residents o thesecommunities. The Los AngelesPolice Department established areporting center to facilitatecommunication with that city'sKorean population, and officersat the LAPD's Wilshire divisionwere offered the opportunity totake a basic Korean languagecourse on duty time. St. Paul,Minnesota, police have access toHmong interpreters to workwith thousands of newly settledLaotians. In Seattle and manyother communities, crimeprevention pamphlets aretranslated into a wide range oflanguages.3

These efforts have been suc-cessful within the limits of theCSO's authority. Other agencieshave recognized the need to takean additional step: they havemade efforts to recruit and hirerepresentatives of non-nativecommunities for their swornforce.

The process, however, has notalways proved to be smooth.Law enforcement agencies havebeen challenged - and in somecases stymied - by two keybarriers: establishing mutualtrust with the newcomercommunity and shepherdingnewcomers through thedemanding recruiting, hiring,and training regimen.

The Setting: Presentand Projected EthnicDemographics

The 1990 Census showed thatthe United States is home tonearly 20 million foreign-bornresidents, of whom 7.3 millionare described as Asian/PacificAmerican. This categoryencompasses 32 distinct culturalgroups. Its size has doubledwith each census since 1970.4

Many non-native populationscluster in specific regions andcommunities, making them asubstantial part of some largecities, such as San Francisco,Seattle, New York, andPortland, as well as of muchsmaller communities, such asWillows, California, andLowell, Massachusetts.

Although the future ofimmigration and refugeeresettlement hinges largely onthe prevailing political andeconomic winds, experts areforecasting trends that will havea measurable impact oncommunities throughout thenation. In one study publishedin 19925, researchers project thatby the year 2040, the nation'sestimated population of morethan 350 million will include34.5 million Asian and PacificIslander Americans, an increasefrom 1992 of nearly 400percent. Some

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population experts project thatthe birthrate for Hispanics andAsian Americans will outpacethat of other cultures,contributing to a demographicturnaround in which the currentmajority will become theminority by the year 2010.6

Law enforcement agencies donot always reflect communitydemographics. These 1990Bureau of Justice Statistics (U.S.Department of Justice) figurespaint a striking picture:

Local police: (approx. 363,000full-time sworn officers)• 83% white males (non-Latino)• 10.5% African American

males• 5.2% Latino males• 1.3% male all other ethnic

groups• 8.1 % women

Sheriffs' departments: (approx.141,000 full-time swornofficers)• 84.5% white males (non--

Latino)• 9.8% African American males• 4.7% Latino males• 1% male all other ethnic

groups• 15.4% women

State police: (approx. 55,000full-time sworn officers)• 87.1% white males (non--

Latino)• 7.5% African American males• 4.4% Latino males• 1% male all other ethnic

groups• 4.6% women

Minority Hiring

Law enforcement agencieshave set precedents in minorityhiring by recruiting andemploying women, AfricanAmericans, and LatinoAmericans. Agencies that havebuilt a more heterogeneoussworn force, whether due tolegal mandates or not, havealready experienced thenecessary changes in policy andpractice required to includeemployees representing a mix ofcultural backgrounds.

In many cases, rigid hiringrequirements have been mademore flexible to accommodatefemale and non-white malerecruits. According to KathleenHurley, former Coordinator forRecruitment and Hiring for theSan Francisco PoliceDepartment:

It used to be that battlelines were drawnaround the height re-

Law enforcement agencies donot always reflect communitydemographics.

4

Training is constantly beingaltered to help all differentkinds of people.... A diverse[law enforcement] populationserves the public better....

quirement. You used to have tobe a certain height to be anofficer That is no longer thecase. It used to be that an officerhad to have 20/20 vision. Nowthe rules have changed, we'vecome to realize that maybe if anofficer wears soft contact lensesthat won't fall out, that's goodenough. It used to be said thatyou couldn't hire womenbecause their hands aren't largeenough to grip the gunproperly. [So] you procure gunswith a smaller grip and theproblem is solved. Then theysaid you couldn't hire womenbecause they didn't havechanging facilities and restroomsfor them. So you call in anarchitect and alter the physicalplant. Training is constantlybeing altered to help all differentkinds of people.... A diverse[law enforcement] populationserves the public better... It givesyou more resources to help youget the job done.7

Newcomer/PoliceRelations: Past andPresent

Law enforcement has an earlyhistory of working intimatelywith immigrant groups from

Ireland, Great Britain, and otherEuropean countries.Operational changes in the1930s focused on a morecentralized, response-onlystrategy of policing that re-moved much opportunity forroutine community interaction.In recent years, a return to aproblem-solving approach basedon the community has broughtlaw enforcement back intoneighborhoods to workcooperatively with residents toensure public safety.

This trend toward communitypolicing has coincided with thearrival of hundreds of thousandsof Southeast Asians and otherrefugees who have moredifficulty in assimilating intotheir new culture thanimmigrants from the Europeancontinent and Great Britain.

Accompanying upward trendsin legal immigration is an influxof undocumented immigrants both those who enter the U.S.without legal documentationand those who were allowed toenter temporarily but have notre-

5

turned to their native countriesas required by law. Because ofpolitical and media attention tothe problems of illegalimmigration, some U.S.residents believe that all im-migration is having a negativeimpact on the nation's economicand social systems.

It is in this climate that lawenforcement agencies must try toreach out to members of thesenewcomer communities who,like other U.S. residents, arevictims of such crimes as youthgang violence and domesticviolence. With the advent ofdramatic changes toward acommunity-oriented approach topeacekeeping, the time is ripefor a new way to approach thequestions of recruiting andhiring officers, male and female,from the newcomer groups.

How This Book Will Help

The purpose of this book is toexamine and address the issuessurrounding hiring swornofficers from non-nativecommunities by looking overthe shoulders of several lawenforcement agencies that haverecruited and hired (or haveattempted to do so) from suchgroups in their areas.

Veteran law enforcement ex-ecutives and officers haveapproached this challenge with

few precedents or guidelines.Many of them have craftedcreative solutions. Theirexperiences show that they havemet their goals with varyingdegrees of success.

Police and sheriffs' departmentscan extract several lessons fromthe examples included in thesechapters:

• Before law enforcementagencies can resolve barriers,they must work closely withnewcomer groups to build asolid foundation of trust.Without trust, any other effortsat cultural cooperation fail toencourage ethnic minorities tobe partners with or becomemembers of law enforcement.

• Proficiency in spoken andwritten English is a significantbarrier to recruiting, hiring, andretaining ethnic minorityofficers.

• Cultural norms and values,such as non-Western familyexpectations and social values,might hinder successfulrecruiting and training.

• Flexibility and a willingness toapply creative problem-solvingskills are keys to suc-

6

• All professional and supportpersonnel in the departmentneed to be knowledgeable aboutand sensitive to cultural issuesand norms in a multi-culturalcommunity.

• Meeting quotas is not the goal.Agencies should strive toinclude non-native officers in allranks to help meet the primarygoal of peacekeeping: deliveringhigh quality services to allconstituents.

This book proposes that lawenforcement agencies reviewmethods rather than standards ofrecruitment, testing, hiring, andtraining. The methodsemployed by agencies cited inthis document have notcompromised the integrity oflaw enforcement and haveresulted in the hiring of manynon-native officers who havebeen assets to the agency and thecommunity.

The issue is not one of ethnic orracial bias, which has its roots inhatred, bigotry, and ignorance.When polled for this book, non-native officers (as well as native-born law enforcement officerswith expertise in ethnic minorityhiring) denied emphatically thatbigotry presents a seriousobstacle to hiring these indi-viduals. They felt strongly thatcultural differences (language,traditions, attitude toward

authority, etc.) are the keydeterrents to recruiting andhiring, and that racism, while

still alive, is not the determiningissue.

Some officers report that manyU.S. veterans who served inVietnam and returned to careersin law enforcement initiallyexpressed negative feelingsabout Vietnamese and otherSoutheast Asians, but for mostofficers those feelings have dissi-pated or disappeared over time.Changes in attitudes usuallycame after the development ofclose working and personalrelationships.

It is important to caution thereader about stereotyping, whichleads to incorrect perceptionsand intercultural tension. Just asindividual characteristics ofnative-born Americans aredifferent the statement "AllAmericans are cowboys" iscertainly not based in fact - so,too, are individual characteristicsof ethnic minorities. Individualmembers of any culture are richor poor, educated or un-educated, socially involved oraloof, ambitious or unmotivated,tall or short, timid or assertive.

Further, there are cultural dif-ferences within geographicalareas. For example, the des-ignation 'Southeast Asian'-

7

also called Indochinese refers tothe culturally and politicallydiverse inhabitants of threeseparate countries: Vietnam,Cambodia, and Laos. Theseinhabitants speak four distinctlanguages Khmer, Vietnamese,Lao, and Hmong as well asseveral minority languages anddozens of dialects. They havedifferent political and socialhistories, and their cultural andreligious traditions vary widely.People from different parts ofthe same country can bestrikingly dissimilar.

People from different parts ofthe same country can bestrikingly dissimilar

.

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CHAPTER 2 Hiring Newcomers:The Benefits Are Real

Effective communitysafekeeping and problem-solving occur when lawenforcement officers understandand respond to specificcommunity concerns. In thecase of ethnic minoritycommunities, suchunderstanding and response canbe precluded by problems withlack of trust, written and oralcommunication, and culturaldifferences. When a lawenforcement agency hires from anewcomer group to its swornforce, it can more easily avoidmisunderstandings and dispelfear of crime in the community.It can also increase departmentalexpertise, range of personnel re-sources, and community co-operation.

Newcomer Hiring andCommunity Policing

For many decades, policing hasbeen "by the book," referringliterally to volumes of detailedinstruction manuals prescribingspecific responses to everyincident. Community policing,also called community-orientedpolicing, problem-orientedpolicing, and neighborhoodoriented policing, is rapidlyimproving the effectiveness ofpolicing as well as community-

police relations in many citiesand towns, allowing proceduresthat were previously inflexibleto be modified in favor ofaccumulated experience.8 Thiscommunity and neighborhoodproblem-solving approach topolicing complements efforts tohire as sworn officers thosemembers of non-native popula-tions who can deliver effectiveservices to their ethnic minoritycommunities and to thecommunity as a whole.

Community policing is based ona cooperative partnership withcommunity residents to preventcrime, resolve problems thatcontribute to crime, and whenneeded, respond to criminalincidents. Ethnic and otherminority hiring helps lawenforcement agencies to breakdown barriers that might hinderan effective cooperativepartnership.

Economic Benefits ofNewcomer Hiring

Some law enforcement agencieshave realized significant costsavings by hiring nonnativeofficers to help align serviceswith the identified needs of thecommunity. For

Effective community safe-keeping and problem-solvingoccur when law enforcementofficers understand andrespond to specific communityconcerns.

Ethnic and other minorityhiring helps law enforcementagencies to break downbarriers that might hinder aneffective cooperativepartnership.

10

After moving to the U.S., manymembers of ethnic minoritygroups have difficultyunderstanding the specificfunctions and procedures oflocal law enforcement agenciesand therefore use police servicesinappropriately.

The safety of officers patrollingethnic minority neighborhoodscan increase when they areaccompanied by sworn officersof the same ethnic group.

example, sworn non-nativeofficers can help to alleviate avictim's reluctance, possiblycaused by cultural tension orconfusion, to testify; canexpedite case processing byhelping lower communicationbarriers; or can informally in-struct newcomers in police orlegal procedures while on patrol.Each of these decreases the costto process a case by reducing thehours spent clearing upconfusion.

After moving to the U.S., manymembers of ethnic minoritygroups have difficultyunderstanding the specificfunctions and procedures oflocal law enforcement agenciesand therefore use police servicesinappropriately. For example,the use of an emergency 9-1-1system for nonemergencies iscostly and reduces the time thata patrol officer can attend toprimary peacekeeping or crimeresponse duties. Reduction of9-1-1 calls maximizes the use ofresidents' tax dollars.9 Officersfamiliar with the language andindividual leaders can teachcommunity residents aboutproper procedures for reportingemergencies and alternativeways to obtain non-emergencypolice services.

Thao Bui, a counselor with theMaryland Vietnamese MutualOrganization located in a

Washington, D.C. suburb,reports that interpreting inter-views with crime victims andwitnesses for police can fre-quently take three to four hours.FBI agent Gary Sheppard, amember of the Asian OrganizedCrime Task Force for the DCMetropolitan Area (which, as ofsummer 1995 had no membersof Asian descent), adds that IIsometimes we have to grabpeople on the street who weknow can speak [the specificAsian language]," but that cancreate problems if the translationis not accurate. In Washingtonand the surrounding Marylandand Virginia suburban areas, theAsian community numbersabout 217,000, but less than 1percent of sworn officers areAsian Americans.10

Ethnic Minority HiringCan Increase Safety

The safety of officers patrollingethnic minority neighborhoodscan increase when they areaccompanied by sworn officersof the same ethnic group. Notonly are the native-born officersmore accepted and considered tobe more trustworthy if they arewith ethnic minority officers,but misunderstandings leadingto quick - and sometimesdangerously inappropriate -decisions can be prevented.

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For example, it is not unusualfor newly settled Vietnamesewho have been pulled over for atraffic violation to leave theircars and bow in order to showrespect. This custom could setthe stage for unfortunateconsequences. Police who workin Korean communities need tobe aware that handing a ticket orsummons to a Korean with onehand instead of two can be inter-preted as an insult or a sign ofdisrespect, setting the stage forpossible conflict.11

In some cases, newcomercustoms might be consideredunlawful in the United Statesand, therefore, be a source ofmisunderstanding and possiblytragic error. For example, insome Southeast Asian countries,village elders manage socialbehavior of youthful offendersthrough swift physicalpunishment. In the U.S., thisbehavior might be consideredchild abuse or a violation ofindividual rights. But SoutheastAsians see their tradition asunderscoring the directconnection of action andconsequences, and they arebewildered by young U.S.offenders who are released bythe criminal justice systemwithout obvious punishment.12

Likewise, some SoutheastAsians fail to perceive some actsas criminal, such as

extortion, bribe-taking, vandal-ism, or child or spouse abuse,because these offenses werecommonplace in their nativecountries.

Intangible Benefits

Some of the benefits of hiringsworn officers from ethnic mi-nority communities are intan-gible but no less real or im-portant. Lt. Andrew Hall of theWestminster, California, PoliceDepartment cites cross-culturaltrust and education as valuablebenefits of working withSoutheast Asian Americanofficers.

Individual law enforcementofficers can benefit from theenriched multi-cultural under-standing as well as a clearerself-understanding that comesfrom diversity training coveringthe following areas ofexamination:

• How cultural awareness im-proves police professionalism;

•• How personal prejudice in-terferes with effective policing;

• How culturally-diversemembers of the communityperceive the police; and

• How to improve interpersonalskills to reduce cultural tensionand conflict.13

Newcomer customs might beconsidered unlawful in theUnited States and, therefore,be a source ofmisunderstanding andpossible tragic error.

12

Law enforcement agencies aren'tthe sole beneficiaries ofhiring non-native officers.Some ethnic minority com-munities have experienced adecrease in crime and a markedreduction in the fear of crime.Having representation on thesworn force has also increasednon-native community access tothe criminal justice system andimproved trust in law enforce-ment and other branches of thesystem. Most important, it hasincreased the feeling ofcommunity safety among newlyarrived groups and thus for thecommunity as a whole.

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CHAPTER 3 Building Trust:The First Step

If the police develop trust and credibility with the SoutheastAsian community, they will help keep out gang agitators. Thepolice need to help refugees and immigrants understand thatwhen they come into their community to arrest someone, they

are not being aggressive toward [the non-native residents];they are being aggressive toward crime.

Participant at an Office of Refugee Resettlement/National Crime Prevention Councilconference on refugee/law enforcement relations, 1993.

Most department officials andminority group members agreethat lack of trust is a formidablebarrier that can take a long timeto overcome. Many newcomers,especially those from SoutheastAsia, have a deep distrust of thepolice and courts that addresssituations that were handledprivately in their nativecountries.14

In one survey,15 Vietnamesenewcomers reported two pri-mary reasons for their distrust ofpolice: they feel that police areinsensitive to refugees' andimmigrants' cultural heritage,and they are confused andanxious about the criminaljustice system, specifically thebail process. They areconcerned that suspects, afterbeing arrested, might be releasedand allowed to return to threatenvictims and witnesses. They arealso afraid to testify in court

about a suspect. In theirhomeland, an encounterbetween suspect and witness wasnot required by law.

Three Levels of Trust

Law enforcement and othercommunity members can de-velop trust with ethnic minorityresidents on three levels:

• Formally, through organiza-tions, coalitions, councils, andtask forces.

• On the working level, withpatrol officers walking the beatthrough newcomerneighborhoods and getting toknow residents.

• Informally (and often mosteffectively), when communityresidents and law enforcementbecome acquainted throughsocial or

Vietnamese newcomersreported two primary reasonsfor their distrust of police.

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civic events or join together towork for common goals, such asyouth safety.

In order to build a formalfoundation of trust in Portland,Oregon, the Police Bureau andHmong American Unity ofOregon, Inc., an organization ofrefugee leaders, signed a Letterof Agreement in support of acomprehensive partnership toeducate Hmong families aboutOregon law and educatespecially designated policeofficers in ethno-culturalexpectations of the HmongAmerican community.

The refugees promised to assistthe Police Bureau by reportingcrime, testifying in court, andhelping to locate suspects. TheBureau promised to train officersto work closely with thecommunity to ensure greatersafety in their neighborhoods.As a result of increased trustbetween refugees and lawenforcement, refugees are morecomfortable in reporting crime,and they enjoy both anincreased sense of protection anda decreased sense of fear.

This formal arrangement led tothe birth in 1994 of the Asian-

Law Enforcement AdvisoryCouncil of Oregon (A-LEACO), a partnership to buildtrust, improve community safetybased on community policingprinciples, and foster a morecoordinated and effectiveworking relationship betweenthe ethnic communities and thecriminal justice system andsocial service agencies.16

In St. Paul, Minnesota, ACommunity Outreach Program -ACOP - brings the city's policedepartment, public housingagency, and large Cambodianpopulation together through aclose working relationship.ACOP has uniformed policeofficers, including HmongAmerican officers, who patrolpublic housing communities,befriending residents andhelping them with a range ofproblems. In addition to regularpolice duties, the officersroutinely attend resident councilmeetings, coach athletic teams,and provide leadership for youthactivities. Two full-timeCambodian American crimeprevention specialists on thestaff of the police departmenthave established block clubs thatmeet regularly.

15

Trust: Starting in theNeighborhood

Experts have found that trustoften develops from the bottomup, not the top down.17

Relationships are more easilydeveloped at the individuallevel, not only face-to-face butshoulder-to-shoulder. Trust is avalued by-product when indi-viduals, often with dissimilarbackgrounds, collaborate onsocial and civic activities such asorganized responses to localproblems.

Vietnamese American OfficerNguyen Van Trong of theBiloxi, Mississippi, Police De-partment goes into schools andworks with individual youth toteach them anti-drug techniquesusing the Drug AbuseResistance Education(D.A.R.E.) curriculum. He alsomeets with Vietnamese adults intheir community to teachparenting skills. He is wellknown in Biloxi, having been asworn officer since 1985 whenhe served first as a patrolmanand then as a detective. Hereports that crime has decreasedin the Vietnameseneighborhoods of Biloxi be-cause he personally encouragesresidents to trust law en-forcement and report crime.

Helping multi-cultural commu-nities resolve day-to-day prob-lems reinforces trust. Swornofficers and civilian employees

can offer special services tovictims; mediate communityconflicts; improve neighbor-hood conditions by problem-solving with local merchantsand residents; control traff icproblems; assist with residentialsecurity concerns; establish orsupport Neighborhood Watchgroups; educate the communityabout gang suppression andprevention; and provideemergency referrals to socialservices.

Mutual Assistance Associations,refugee self-help groups thatunderstand the needs of theirrefugee countrymen, provide avariety of services andopportunities for building trust,such as serving as liaison be-tween newcomer communitiesand law enforcement, assistingwith language proficiencyclasses and interpreting services,and educating refugees about theAmerican criminal justicesystem.

In sum, one of the most effectivetrust-building efforts is forpolice or sheriff's departments torecruit and hire sworn ethnicminority officers who becomerole models of good citizenshipand community service.Although this is an effective toolto address cultural issues, somelaw enforcement agencies havefound that ethnic minorityhiring can raise additional issuesthat require creative and focusedattention.

Relationships are more easilydeveloped at the individuallevel, not only face-to-face butshoulder-to-shoulder.

Mutual AssistanceAssociations, refugee self-helpgroups that understand theneeds of their refugeecountrymen, provide a varietyof services and opportunitiesfor building trust.

17

CHAPTER 4 Recruiting, Hiring & Retaining:Steps Toward Success

We recruit women and minority candidates because it is right.And we recruit women and minorities because it makes us a

better, more effective Sheriff's Department. And that, after allis said and done, should be the goal of any good organization.

Sheriff Michael Hennessey, San Francisco, CALaw Enforcement News, 2 February 198918

On average, police agenciesscreen 10 candidates for everyone that is hired.19 The process iscomplicated, costly,comprehensive, and can begrueling. However, the qualityof selected employees -particularly sworn officers - isdirectly responsible for thequality and effectiveness of theorganization.

State statutes or local charters orordinances usually control thebasic framework for lawenforcement personnel selection.For some communities, selectioncomes under the jurisdiction ofan independent civil servicecommission, an executivepersonnel system, or somecombination of the two. Civilservice commissions may haveonly advisory powers, or theymay be responsible for directadministration of the personnelfunction. In most medium-and

large-sized cities and counties,authority in personnel matters isshared by the chief executiveand an independent centralpersonnel agency. In other lawenforcement agencies, personnelfunctions are supervised by apolice officer or a civilianadministrative assistant.

To reduce time and cost, someagencies have collaborated toestablish eligibility pools bysharing some of the expenses forthe initial phases of recruiting.A second approach is to use aregistry managed by a privatevendor that establishes a list ofcertified candidates.20

Communities face differentobstacles when recruiting andhiring non-native officers in partdue to the nature of theiremployment process. Theobstacles and solutions outlined here may ap-

18

It is critical that the chiefexecutive set the tone and allupper ranks subscribe to andsupport ethnic diversity hiringefforts.

It must be emphasized that therationale for ethnic minorityhiring should not rest oncurrent legal requirements ofaffirmative action; the keyjustification is that it results inmore effective policing.

ply directly to an individualcommunity's experience; or theymay have to be tailored to fitspecific circumstances.

Recruiting and hiring must be asignificant priority for the chiefor sheriff and top levels ofcommand. As in any decisionto improve the effectiveness of alaw enforcement agency, it iscritical that the chief executiveset the tone and all upper rankssubscribe to and support ethnicdiversity hiring efforts.

Legal Base for Non-Discrimination in Hiring

When Congress established theEqual Employment OpportunityCommission in 1964, it chargedthe Commission to oversee theimplementation of Title VII ofthe Civil Rights Act, making itillegal for employers to dis-criminate against certain pro-tected classes on the basis ofrace, sex, color, religion, ornational origin. It further set outthat all criteria for hiring andpromotion must be based on"bona fide occupationalqualifications" (BFOQ).Similarly, all termination’s,compensations, and otheremployment practices mustemanate from objective,defensible standards anddocumented performance.

The passage of the EqualEmployment Opportunity Actin 1972 created the basis forsuccessful legal challenges totraditional practices thatallegedly favored white males.This law resulted in lawenforcement agencies beingrequired to review hiringpractices to ensure that they werefree from intentional orunintentional bias. In a 1989study, nearly two-thirds of allmedium-sized policedepartments reported operatingunder an affirmative action planat some time between 1983 and1988.21 it must be emphasizedthat the rationale for ethnicminority hiring should not reston current legal requirements ofaffirmative action; the key justi-fication is that it results in moreeffective policing.

Ethnic Minority RecruitmentEfforts

The primary goal of recruitmentis to attract qualified individualsto serve as exemplary policeofficers. Most departments haveclear, written policies that guiderecruitment efforts, and they useemployee selection proceduresrelated to on-the-jobperformance. At the same time,in the interest of improving thedepartment's effectiveness andresponsiveness to thecommunity, de-

19

partments are making specialefforts to attract, hire, andpromote qualified women andother individuals who representthe racial, ethnic, and culturaldiversity of the service area.22

One possible source of swornofficers comes from within thedepartment. Some newcomercommunity residents take jobsas non-sworn CommunityService Officers (CSO), a rolethat is usually defined by theneeds of the community. CSOduties can include:

• serving as liaison betweencommunity and police;

• translating important legaldocuments and being called tointerpret for victims andwitnesses after an incident hasbeen reported;

• teaching information about thecriminal justice system inEnglish for Speakers of OtherLanguages (ESOL) classes;

• working with youth groups;

• teaching drug prevention toparents and youth;

• teaching crime prevention tobusiness and residents in thenewcomer community;

• encouraging victims to report

crime, such as domestic violenceor child abuse; and

• helping during non-policecrises, such as medicalemergencies.

In recruiting individuals fromnon-native communities, lawenforcement should considersome or all of the followingaggressive measures:23

• Promote jobs career fairs.Announcements should includean Equal Opportunity Employer(EOE) statement. Make surethere is follow up with peoplewho seem interested and leavetheir name and telephonenumber.

• Establish specially trainedethnic or minority recruitmenttask forces, such as the unitestablished by the San FranciscoPolice Department.

•Maintain liaison with referralsources, such as youth basedorganizations, high schools,colleges, and immigrant orrefugee service organizations.

• Provide recruitment coun-seling at satellite police stations,storefronts, and walk-ins locatedin ethnic minorityneighborhoods.

• Advertise job announcementsin newspapers and

20

Experiences in their homelandleft them with the sense thatlaw enforcement is corruptand dishonorable.

magazines and on radio andtelevision stations catering toethnic minorities.

• Keep the time period fromrecruitment to selection to aminimum, so that candidateswill not lose interest in a lawenforcement career.

Officer Gaylord Gee of theCalifornia Highway Patrol ob-serves that some newcomers,particularly Southeast Asians,are reluctant to apply to lawenforcement agencies foremployment because of severalconcerns. First, experiences intheir homeland probably leftthem with the sense that lawenforcement is corrupt anddishonorable. Additionally, thestruggle to succeed at the policeacademy and in field trainingcan be a more demanding effortthan that required of anAmerican-born recruit. Finally,if they fail, they may feel theyhave brought shame to theirfamily, their ethnic community,and supporters in the policedepartment.

Officer Gee also feels that recentmedia portrayal of police haveplayed a negative role inattracting ethnic minorities.Television shows in the 1960sand 1970s, such as Adam-12,CHiPs, and Dragnet, showedpolice work in a non-violentway. "You hardly ever saw any

of those officers with a gun,"remembers Gee. Television inthe 1990s, with its movementtoward "realism," graphicallydepicts violence, gun fights,drug deals, and corruption toincrease ratings. "Sure, thosethings happen to police officers,but they are not typical ofeveryday life on the job," saysGee. "If you've come from acountry where law enforcementis a source of persecution, you'renot going to want to join thelaw enforcement depicted onAmerican television!"

In Miami, home to many Afri-can Americans and LatinoAmericans, advertising onaudience-specific radio stationshas proved to be effective, notesLt. Rick Holton of Miami'sMetro Dade Police TrainingBureau. The recruitment teammakes a special effort to bepresent at cultural festivals thattake place throughout the year.In addition, many of thedepartment's African Americanand Latino American officers aresent to speak in areas where thenewcomer population isconcentrated, generating interestamong those segments of thecommunity. Recruiters also at-tend "Career Day" fairs in juniorand senior high schools. "Wetry to instill in kids that being apolice officer is a goodemployment

21

opportunity, and that it's a re-spected position within the 24

community," adds Lt. Holton.

In San Francisco, targetedrecruitment of minorities andwomen was mandated as part ofa 1979 court settlement andconsent decree. According toKathleen Hurley, formerly SanFrancisco's Recruitment andExamination Coordinator, thedepartment actively seeksqualified minority and womenapplicants, displaying photo-graphs of Latino, SoutheastAsian, and other non-nativemale and female officers inneighborhoods and multi-cul-tural businesses and socialcenters where newcomers aremost likely to see them. Hurleyalso sent out multiracial andmulti-ethnic recruiting teams toethnic minority neighborhoodsto underscore the department'scommitment to effectiveworking relationships among avariety of people.

In the Boston suburb ofDorcester, Tram Tran, a femaleVietnamese AmericanCommunity Service Officer whohas been in the U.S. since 1985,goes out into the Vietnamesecommunity to postannouncements and distributefliers and newsletters about lawenforcement recruitment andcrime prevention matters. Thedepartment also runs recruitment

notices in Vietnamese news-papers and on Vietnamese radiostations. Tran reports that in1994, over 100 VietnameseAmericans took the civil servicepolice exam; 17 passed and wereranked, and four are scheduledto enter the police academy. Innearby Lowell, Massachusetts,the police department declaredan emergency before the civilservice commission, arguingtheir need for linguistically andculturally specific applicants toserve their large Cambodianpopulation. They were able tomodify the system to hire foursworn Cambodian Americanofficers.

Some departments have de-veloped special programs torecruit in high schools. Thiseffort helps develop in youngpeople an interest in policingand fosters that interest beforethe students develop otheroccupational ambitions.

The Maryland-National CapitalPark Police has developed threecomplementary programsdirected toward the county'snon-native high schoolpopulation, particularly thosefrom Asian and Hispaniccountries. In the Ride-Alongprogram, students and officersare paired for two days ofpersonal interaction that alsoincludes a

Some departments havedeveloped special programs torecruit in high schools.

22

profile of police work; an ex-change of cultural information,food, and music at lunchtime;and a tour of Park Policeheadquarters.

In the Student Law EnforcementCareer Opportunity Program,classroom instruction iscombined with practicalexercises, allowing the studentto work within specialized areasof the agency. Programmanagers hope that the courseswill eventually be certified bythe Maryland Police TrainingCommission, resulting in coursecredit from a police academy,extra consideration during theemployment selection process,or entrance to an agency at ahigher pay grade.

The Community Park PoliceAide Program provides trainingfor students who want to assistPark Police by providing non-enforcement and non-confrontational police relatedservices to the public under thesupervision of a park policeofficer. A mentor system allowsstudents to interact with bothpolice instructors and fieldsupervisors. Upon completionof the training, students are as-signed to field duties under thesupervision of a patrol officer.Students are paid for theirservices through private sectorfunding.

According to Sgt. Jake Bise,these programs have introducedyoung people to policeoperations, encouraged them tomake friends with sworn policepersonnel, and helped them withcourses that can lead to lawenforcement career choices.

Variations and Constants inSelection

Once individuals have expressedinterest in becoming swornpolice officers, they mustproceed through severalstandard steps:25

1. Submit an applicationform or send a letterproviding basic informa-tion about background,characteristics, andpersonal and educa-tional history. Mostagencies require thatrecruits hold U.S.citizenship. Otherselection standards caninclude any or all of thefollowing: driver'slicense status, age,residency within agencyjurisdiction, high schooldiploma, voter status,and visual acuity. Use ofany of these standards isbased on pertinent statestatutes, state or countycase law, and state andfederal employeeselection guidelines.

23

2. Take written tests that aredemonstrably related tojob performance.

3. If the applicants aresuccessful on the writtentests, somedepartments administerother testing proceduresand instruments.Previously conductedprior to a job offer, mostmedical and physicalexams and psychologicaltests are nowadministered after a jobhas been conditionallyoffered, due to changesmade by the Americanswith Disabilities Act(ADA).

The written test is a primarygatekeeper for personnelselection. It reduces the initialapplicant pool, which can besizable, to a manageable numberbefore applicants advance tomore expensive and time-consuming selection procedures.Studies have found that someminority candidates tend toscore lower and are rejected at ahigher rate because of the resultsof standard written tests.26 Theseresults may be explained by oneor a combination of factors, in-cluding unfamiliarity with termsand semantic nuances, use ofexamples that require a specificcultural framework or reference,or pressure from timelimitations.

The written test is a primarygatekeeper for personnelselection.

Standard Steps in Selection

• Submit an application.

• Take a written test.

• Get a physical and psychological exam.

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Variations in Agency Selection Process

Recruitment methods: Television, radio, newspapers, journals, mass mailings, posters, open days atthe agency, recruiting stands at malls and other public places

Special targets: Women, handicapped, military veterans, university graduates, ethnic minorities,candidates with prior police service

Required: Written, psychological, and polygraph tests; police interview; backgroundcheck; written references; medical tests including drugs, general fitness, bloodpressure, vision, coordination, chest x-ray, cardiovascular fitness, upper bodystrength, color vision, body fat, hearing, agility, endurance

Polygraph probes: Honesty, aggression, criminality, unlawful sexual behavior

Oral interview: Motivation, loyalty, common sense, application form information, drinkinghabits, violence, perceived strengths and weaknesses, verbal communicationskills, ambition, discretion, honesty, interests, appearance

Written exam: General knowledge, intelligence, grammar, vocabulary, comprehension,reasoning, logic, mathematics

Academy Training

General: Length of training -- 16-26 weeks; full-time wages; tuition paid by agency;more than 65% passing rate

Courses: Law, police procedure and response; interpersonal skills, weapons training,driver training, self-defense, first aid, physical training, drill

Instruction methods: Lecture, demonstration, role-play, discussion, computer work, film/video,hands-on experience (weapons, driving, arrest techniques, hostage situations,crimes in progress).

[Study conducted in 60 departments, each with more than 500 sworn officers; items listed here werereported by a majority of participating agencies. (Strawbridge and Strawbridge, 1990)]

Post Academy Training

General: In-service field training; new officer on probation first observes Field TrainingOfficer (FTO) for several months, then FTO observes and evaluates new officerin his or her performance of police duties.

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The usefulness of any selectioninstrument lies in how well itmeasures the person for the joband produces qualifiedcandidates to meet the agency'sgoals. A test should correlatethe applicant's skills more withcritical aspects of job perfor-mance than with his or herfamiliarity with non-applicabledetails of mainstream culture.27

Courts, regulatory agencies, andprofessional standards settinggroups have devotedconsiderable attention to theissue of fairness of written testsand hiring and promotionstandards. Published articlesreport that some courts havefound law enforcementpsychological tests to be raciallyand culturally biased (Grizzell v.Jackson [Mississippi] PoliceDepartment in 1979 and Leagueof United Latin AmericanCitizens v. City of Santa Ana in1976.)28

Many psychologists have de-bated the charge of bias in thesestandardized tests, and somehave agreed that the MinnesotaMultiphasic PersonalityInventory (MMPI) is raciallybiased against AfricanAmericans, and the InwaldPersonality Inventory (IPI)should be used only as an

adjunct to other selection testingsuch as in-depth interviews.29

The use of a “canned"psychological test and/orpsychological interview to denysomeone employment as apolice officer may place thedepartment at risk of litigation.30

Some departments maintainseparate lists of test scores,including one for minorities,ranking people with their ownpeers. This method can be usedto balance departmentalcomposition, but it can alsocreate serious morale andbacklash problems among non-minority personnel.31

It is advisable for non-nativepolice test candidates to undergoextensive preparation. Thefollowing strategies have provedhelpful to many:

• Read law enforcement booksfrom the library.

• Practice taking timed tests tohelp adjust to the pressure oftime restrictions.

• Study books, such as this one,that make candidates aware ofpossible obstacles.

• Learn about United Stateshistory and culture.

The usefulness of any selectioninstrument lies in how well itmeasures the person for thejob and produces qualifiedcandidates to meet theagency’s goals.

Many psychologists havedebated the charge of bias inthese standardized test.

26

San Francisco PoliceDepartment has establishedspecial assistance programsfor ethnic minority recruits toprepare for written and oralexaminations.

In the 1994 Entry Level PoliceOfficer Examination Orientationand Preparation Guide,published by theCommonwealth of Massa-chusetts, applicants are en-couraged to:

1. Sharpen observation andmemory skills bylooking at "wantedposters" in post officesand test their retentionof detail.

2. Practice reading andremembering facts byselecting magazinearticles with a lot ofinformation, readingthem as quickly andthoroughly as possible,and then testing infor-mation retention after ashort period of time. Astudy partner can askquestions about thearticle.

3. Check bookstores orlibraries to find informa-tion that relates specifi-cally to crime scenariosinvolving judgment andproblem-solving.

4. Bring a watch to theexam to gauge theamount of time left inthe testing period.Work quickly, but don'trush.

5. Practice taking tests witha multiple-choice format.

The Massachusetts guideincludes a series of studyquestions based on under-standing and retaining details ofphysical evidence, observationof suspects, and reasoning andjudgment in crime scenarios. Italso lists police-relatedvocabulary words that thecandidate should master beforetaking the test.

Julia Gonzales, currentrecruitment coordinator for theSan Francisco PoliceDepartment, reports that heragency has established specialassistance programs for ethnicminority recruits to prepare forwritten and oral examinations.They also offer a mentoring andpeer group program to help re-cruits advance successfullythrough the selection process.

Chief Robert Shadley of theWillows, California, PoliceDepartment employed apsychologist to give a nonnativerecruit an oral psychologicalinterview instead of thestandardized and possiblyculturally-biased written test.The interview met Californiapolice testing standards, butcouched questions in aframework more understandableto a member of a non-nativeculture.

27

Specific Problems AffectingSelection, Hiring, andTraining

Although the tendency of thepublic to stereotype refugees andimmigrants from non-westerncultures can lead to inaccuracies,misrepresentation, andultimately discrimination, somelaw enforcement practitionersreport specific challenges tohiring and training some ethnicminority individuals. Any or allof the following issues havepresented stumbling blocks tothose departments that have triedto recruit, hire, and trainnewcomers, particularlySoutheast Asians:

Does the testing processrequire a vocabulary that isculture-specific? Are tenses,other grammatical rules, orpronunciation a problem?

Do some newcomers fail tocommand authority orresolve conflicts becausetheir culture values avoidingconfrontation? Are somefemale recruits seen asparticularly unassertive?

Do practical aspects of non-native cultures, such asconcepts about time,interfere with some recruits'abilities to perform the duties

of a sworn officereffectively?

Communication andLanguage

Language separates as well asbinds. Patterns of languageusage often express32 powerrelations. The way someonespeaks can be a source ofintergroup conflict, tension, anddistance. Command of alanguage is more than atechnical skill; it is also a key toeconomic well-being. Successin the workplace often requiresthe employee to understandexplicit instructions andcommunicate effectively toothers. This need is particularlyacute in policing.

To law enforcement, accurateand timely communication isparamount. On-the-job " policelanguage" is structured andlinear, and officers are trained tofine-tuned listening andprecision of terms. They needto make decisions quickly basedon accurate information fromvictims and witnesses. Theircommunication often takes theform of directions andcommands. To help bridgecultural communication gaps,some law enforcement agencieshave conducted culturalsensitivity training to addresspossible points of

To help bridge culturalcommunications gaps, somelaw enforcement agencies haveconducted cultural sensitivitytraining to address possiblepoints of communication-related conflict between policeand newcomer cultures.

28

communication-related conflictbetween police and newcomercultures.

Some newly settled SoutheastAsians, for example, areuncomfortable with verbalconfrontation and appear passivewhen in the company of native-born Americans. ManyCambodians, Laotians, andVietnamese who speak Englishwhen they arrive in the U.S.have to learn to distinguishbetween tenses and betweensingular and plural forms.Frequently, they do not makeeye contact when talking orlistening. When speakingamong themselves or to others,they demonstrate great deferencefor authority. They punctuatetheir speech with body gesturesand bowing. Hmong and Laomen and women traditionally donot shake hands, appearingunfriendly to those who do notunderstand the cultures. Suchcultural differences can be asource of misunderstanding.

The development of writtenskills is equally important for alaw enforcement candidate. Theability to take accurate notes andwrite clear and accurate reports iskey to the job.

Tram Tran, a Vietnameserefugee and now a U.S. citizen,has been in the U.S. for 10years. After serving as acommunity service officer, she

took the written police civilservice exam but did not pass.She reported that she found theexam procedure difficult becausethere was insufficient time forher to finish. She wanted toread each section twice to ensurethat she understood all thequestions, and that processrestricted her time. She alsoreported finding the multiplechoice format difficult becauseshe thought there were severalanswers for each question thatwere reasonable. She thoughtthe questions were "tricky." Thecandidates were given a bookletbefore the test to help themprepare, but Tram found thequestions in the booklet to be"very different from the actualtest."

In her case, Tram thoughtadditional time would havehelped her do well on the test.However, police officers pointout that thinking quickly anddecisively is critical to effectivepolice work. Although she wasunsuccessful in passing theexam, Tram coached others whosucceeded. Her coachingresulted in four newcomercandidates proceeding to thepolice academy. She hasreturned to her communityliaison work, where she hasexcelled, but has not abandonedher ambition to become a swornofficer.

29

Concept of Authority

Problems with self-assertion andthe concept of authority canaffect an officer's effectiveness inresolving conflict, both withinthe department and amongpublic disputants. Non-nativeofficers in academy trainingclasses and practical fieldexperiences need a strong focuson reinforcing conflict manage-ment and problem-solvingskills.

Law enforcement organizationsare traditionally hierarchical andparamilitary. Police officers aretrained to give commands tomaintain order, and they expectpeople to follow their directionsprecisely and quickly. Incultural contrast, manyCambodians and Vietnamesemistrust outside authority,tending to place sole authoritywithin the family. Similarly, inthe Hmong/Lao culture,authority also rests with themales and elders in the family.Respected family members - notoutsiders solve problems. If aSoutheast Asian youth commitsan offense, the family usuallyfeels a strong sense of shamebecause the youth has broughtdishonor to the family name.Family shame can be a deterrent

to turning to outside authorities,such as law enforcement, tosolve problems.

Concept of Time

Law enforcement culture valuespunctuality and a precise senseof time as vital to successful jobperformance, particularly duringemergencies and crises. Thepublic often judges lawenforcement delivery of serviceby response time, and for police,timeliness is defined in terms ofseconds.

Many Southeast Asian culturesembrace a concept of time thatconflicts dramatically with thatof the law enforcement culture.Cambodian participants at a1993 conference to explorecultural differences admitted thatthey were rarely on time. At thesame conference, members ofthe Hmong and Lao culturesstated they find the importanceof timeliness insignificant, andthey generally lack what U.S.-born residents would define as"time management skills." OneVietnamese participant referredto time as "elastic," and statedthat members of his culture putlittle value on long-termplanning.

Non-native officers in academytraining classes and practicalfield experiences need a strongfocus on reinforcing conflictmanagement and problem-solving skills.

Family shame can be a deterrentto turning to outside authorities.

30

Many Southeast Asiancultures embrace a concept oftime that conflictsdramatically with that of thelaw enforcement culture.

Other Barriers

Some community barriers toethnic minority hiring can beaddressed locally with positivechanges in agency training,personnel policies, attitudes ofcommand staff, communicationskills, and recruitmenttechniques. More formidablebarriers can exist, however, intwo areas that may not be asamenable to local pressure forchange.

As mentioned in an earliersection, the civil service systemof selection can interfere with anagency's goal of hiring non-native sworn officers, due to itsreliance on rank-ordered testing.A few departments, such as theLowell, Massachusetts, PoliceDepartment, have been able tobypass the rigidity of civilservice system to hire much-needed ethnic minority officersto meet a need in theircommunity.

An additional problem is that ofpolice labor groups whosemandate is to fairly protect therights and working conditionsof all members. Whereas theactivities of these groups areintended to positively improvethe police workforce, they canwork against minority hiringand promotion if minorities areperceived as receiving unfair

advantages. Labor groups aregenerally strong and notoriouslydifficult to influence, andchanges in labor group-relatedpractices may come slowly.

Solutions That Are Working

Some agencies have foundsolutions to some of theobstacles to recruiting, hiring,and retaining newcomers thatavoid compromising theintegrity of the process:

• Allow extra time for sectionsof the written test that don'tmeasure quick response andaction.

• Enroll candidates in readingcomprehension courses.

• Assist candidates with:vocabulary and pronunciation;interviewing; crucial writtenskills; and listening skills.

• Identify and address culturaldifferences that may interferewith law enforcement operatingprinciples and performance.

• Encourage recruits to workclosely with a mentor duringtraining at the academy.

• Emphasize cultural training forveteran officers.

31

The California Commission onPeace Officer Standards andTraining (POST) has developeda curriculum, entitled"Introduction to LawEnforcement for SoutheastAsians," that targets post-academy officers, communityservice officers, non-swornreserves, and police cadets.33

The curriculum addresses manyissues through awareness andconsciousness-raising, bringingattention to seeminglystraightforward problems thatcan have far-rangingrepercussions because of culturalmisunderstandings. Thecurriculum also offers testedsolutions to some problems thatfacilitate the ethnic minorityhiring and training process.Participants learn about the widevariety of obstacles they mayface, both from within thedepartment and from newcomerand U.S.-born communitymembers.

The course begins with basicknowledge about the functionsand methods of law enforcementand the criminal justice system,the organizational structure ofpolice and sheriffs' departments,a comparison of U.S. lawenforcement to that of othercountries, an explanation of thechain of command, and an

outline of career development.Participants also learn aboutrequests for police service andthe elements of satisfactorycommunity relations, such asresponse time, citizencomplaints, public presentations,and civic involvement (e.g.,Neighborhood Watch and DrugAbuse Resistance Education orD.A.R.E.). Instructors quizparticipants on their knowledgeof law enforcement functionsboth before and after thesetopics are discussed.

Professional Behavior,Cultural Differences, and Job-Related Stress

Basic information on lawenforcement is followed bydiscussions about assertive andauthoritative behavior, thestresses of law enforcementwork, and stress management.Job-related stresses are identifiedas irregular or long work hours;unusual days off (weekdaysinstead of weekends); thedemands and consequences ofjob dedication; the possibleemotionally trying nature of thework (homicides, child andspousal abuse, life-threateningsituations); and the high divorcerate among law enforcementofficers (second only to theentertainment industry).

32

The police academy requiresthat cadets absorb a largevolume of material, have well-honed communication skills,and be able to concentratewithin the distraction of a newenvironment.

Participants also learn about thepressures of being an entry-levelrecruit: oral and written exams,the military environment of theacademy, the heavy academicworkload, and the challenge oftough physical conditioning.The police academy requires thatcadets absorb a large volume ofmaterial, have well-honedcommunication skills, and beable to concentrate within thedistraction of a new environ-ment. Additionally, cadets areoften separated from theirfamilies and support systems.One solution to these pressuresis for the cadet to partner with amentor who can assist withproblems that may arise.

When they enter field training,officers feel pressure todemonstrate the lessons learnedin the academy, striving to meetthe expectations of their FieldTraining Officer (FTO). It isduring this period that the truetests of policing abilities occur,often causing stress to the newofficer.

According to Lt. A.J. Key of theArlington, Texas, PoliceDepartment, some newcomerrecruits who excel in theacademy meet their toughestchallenges in field training. "Itis easier for some recruits tolearn specific facts and responsesby rote out of a textbook or

from an instructor. It is oftenmuch harder for them to have touse creative problem-solvingskills when they are faced with areal situation."

When Field Training Officerswork with academy graduatesfrom newcomer groups, Keyadds, cross-culturalunderstanding is absolutelyimperative. "The FTO needs tohave accurate backgroundinformation about cultural andsocial values in order tounderstand some of the choicesand decisions made by ethnicminority officers," Lt. Key says."Newcomers will surely fail ifwe expect them to behave intheir community in exactly thesame way that we do in ours.Thought processes can differ,and those differences can beacceptable as long as they staywithin certain law enforcementstandards."

Lt. Key also warns that eventhough the academy has taughtthe officer how to respond tospecific incidents, culturaltradition can interfere with goodpolicing practices and responsein a crisis situation. If the ethnicofficer's native country doesn'tvalue the role of women, forexample, the officer may notrespond appropriately to adomestic

33

violence case. It is critical forthe ethnic minority officer tohave full understanding of U.S.social values, as well as the law,in order to serve the communityeffectively. "The FTO has theresponsibility not only tounderstand the newcomer'scultural framework but also toshare U.S. norms and standardsas the new officer goes throughfield training."

Driving Skills

California Highway PatrolOfficer Gaylord Gee, aninstructor in the POST course,notes that driving skills maypresent a problem for non-nativeofficers. U.S. drivers have theopportunity to develop skills asfully licensed drivers from age16 onward. They know theroads, the mechanics of avehicle, and traffic law. Somenewcomers, by contrast, havenever driven before their entryto the U.S. When they learn thetechniques of driving, they maylack the self-assurance to drivedecisively and authoritatively,which may be needed inresponding to an incident.

Community and FamilyPressures

The POST course participantsare also alerted to additional

pressures and stress such as thepotential high demand for theirintercultural skills; vice andundercover work; possibleinfiltration of their own culturalcommunity (such as for gang ordrug surveillance); and thepotential for initial resentmentfrom other officers or deputies.Additionally, recruits can experi-ence stressful relationships withtheir family members because ofdiffering career expectations, thedanger of their work, and familymembers' fear of retaliation fromsuspects and arrestees.

In Arlington County, Virginia,Keith K. Ahn's Korean-bornparents were so upset about hisjoining the police departmentthat they did not speak to himfor a month. According to Ahn,they told him that there werebetter things he could do withhis life that would make himmore appreciated. "They'rehoping I'll quit soon," saysAhn.34 Larry Ratcliff of thePortland, Oregon, Police Bureauobserves that, "Police depart-ments must sell the job as muchto the family as to the potentialcandidate."

Both the newcomer communityand the community-at-large canput pressure on a new lawenforcement recruit. The ethniccommunity might

Larry Ratcliff of the Portland,Oregon, Police Bureauobserves that, “Policedepartments must sell the jobas much to the family as to thepotential candidate.”

34

fear that the recruit will becomean informant, passing personalinformation to the authorities.And once sworn, the ethnicminority officer might find thathe or she is in demand 24-hours-a-day, 7-days-a-week.The officer may be expected tobe a part of every case thatinvolves language interpretationor cultural confusion. U.S.-bornresidents may fail to recognizesomeone with an "ethnicappearance" as someone withauthority. Additionally, verbaland nonverbal communicationbarriers may heighten tensionbetween an officer from anewcomer group and a longtimeU.S. resident.

The POST course suggests thatethnic minority officers canfoster a comfortable relationshipwith U.S.-born communitymembers or communitymembers from ethnicbackgrounds other than theirown by attending neighborhoodmeetings, working with schoolsand youth groups, and talkingwith merchants and businessowners about public safety andsecurity issues.

Although, a logical assignmentfor a non-native officer wouldseem to be within his or her owncultural community, someveteran law enforcement expertsfeel that this may not be in the

best interest of the officer. "Allofficers must enjoy an equalopportunity to compete for allassignments, districts, trainingopportunities, and promotion,"says Jim Kavinia of the FBITraining Academy in Quantico,Virginia. Research has shownthat restricting ethnic minorityofficers to work within theirown cultural communities mayconfine them to a career paththat does not offer as muchprofessional diversity or asmany opportunities forpromotion.35

Communication Skills

The California POST curricu-lum for Southeast Asiansinstructs participants on voicecommand and control (volume,speed, enunciation, accent, andcommand presence) and offerstechniques to reinforce Englishskills. The participants areencouraged to purchase or haveaccess to a police radio scannerand listen often to radio-transmitted communications.They are instructed to read onlyEnglish newspapers andmagazines, watch Englishtelevision, and refrain fromspeaking their native SoutheastAsian language. If they live innon-English speaking homeswith their parents or other familymembers, the curriculum

35

suggests that they may wish toconsider temporarily movingout.

Southeast Asians arrive in thiscountry with languages anddialects that derive from ancientSanskrit, with nouns that haveno plural form and verbs thathave no past tense. InVietnamese, for example, rarelydo consonants occur at the endof words, causing the sound totaper off softly. Vietnameseimmigrants learning to speakEnglish are inclined to ignorehard sounds at the ends ofwords, making their speechdifficult to understand byveteran English-speakers.

The POST students are alsoinstructed to be aware ofgestures, expressions, and otherbody language that mightsuggest something that isunintended. Eye contact isparticularly important forexpressing authority andcommanding respect.

The curriculum uses roleplaying and interactivediscussion to demonstratecultural differences and conflictresolution skills, interview skills,and sensitive issues such assexual harassment. A final skillsession writing reports emphasizes the use of tenses,singular and plural nouns, anddirect quotations and statements

from victims, witnesses, andsuspects. The participants arerequired to prepare a reportusing guidelines discussed in theclass.

One Officer's Persistence andSuccess

Officer Thomas Lee is a POSTcurriculum success story In1995, Officer Lee, formerly acommunity service officer withthe Willows, California, PoliceDepartment, became the firstsworn Hmong American officeron his force. A native of Laos,Lee settled in St. Paul,Minnesota, after five years in aLaotian refugee camp. When hearrived in the United States, hecould not speak English but wasplaced in mainstream classes inhis St. Paul school. He finishedhigh school and went to a juniorcollege in Minneapolis,transferring to California wherehe received his Bachelor ofScience degree in criminaljustice.

He attended one policeacademy, but he did notgraduate because he failed thewritten test for firearms, one of18 courses of study His policechief and mentor, RobertShadley, enrolled him in asecond academy, away from hishome, where some of the testswere not timed.

Southeast Asians arrive in thiscountry with languages anddialects that derive fromancient Sanskrit, with nounsthat have no past tense.

36

Officer Lee excelled in all hiscourses, graduated to the cheersof his fellow officers at theWillows Police Department andhas entered field training. He isaware of the challenges that lieahead, but is unwavering in hisdetermination to succeed.Funds from the office ofRefugee Resettlement havehelped the Willows PoliceDepartment develop an environ-ment in which law enforcementis viewed by the Hmongcommunity as a positiveresource and career choice.

Creative Hiring Experiences

Don "D.K." Abbott, now retiredfrom the Community RelationsDivision of the San DiegoPolice Department, recountshow he developed a "policedepartment within a policedepartment" in an effort to helpSoutheast Asian officer-candidates reach their goal ofbeing sworn members of theagency.

When Officer Abbott workedwith the agency's crimeprevention division in 1979, hehired four community serviceofficers (CSOs) as translators forthe Hmong, Laotian,Vietnamese, and Cambodianrefugee populations that hadsettled in San Diego. The newlyhired Vietnamese officer had

served in the military in hishomeland, felt comfortable withthe law enforcementenvironment, and decided toapply to the academy. Hepassed the exams, did well in theacademy, but did not make itthrough field training because ofhis inability to write reports ormake himself understood overthe police radio.

He returned to his job as a CSO,and Officer Abbott helped himreinforce his report-writingskills. He listened to radiotransmissions and practiced oralcommunication skills, payingattention to clear enunciationand other speech techniques. Hereturned to the academy and tofield training and is now asworn officer with the SanDiego Police Department.

Officer Abbott noticed that otherSoutheast Asians failed at thefield training level. Hecontinued to hire ethnicminority CSOs and assignedthem all the duties of a swornpatrolman. "The only differencewas that they didn't carry agun," says Abbott. The CSOshandled calls and took reportsfrom newcomer residents whowere reluctant to call 9-1-1.Sworn officers would referethnic minority calls to them.Eventually, Officer Abbott setup a

37

storefront with 14 CSOsspeaking nine languages to servethe newcomer ethnic minorityresidents of the city. When oneof the CSOs went on to theacademy, he filled that positionwith another. They weresuccessful, says Abbott, becauseof their focused, on-the-jobtraining and reinforcement asCSOs.

On-the-Job Anxiety

During field training andprobation, new officers put tothe test their abilities incommunication, self-assertion,investigation, conflict resolution,incident response, and reportwriting, among many others.The stresses of job performanceand constant scrutiny can causesignificant anxiety which, inturn, can affect performance.

"Cultural Diversity: An IntegralPart of Community OrientedPolicing" is a two-week culturaldiversity course conducted aspart of the North East Multi-Regional Training program,under the auspices of the IllinoisState Police training standardsdivision. It teaches lawenforcement diversity trainersabout anxieties experienced bynewly graduated nonnativeofficers. The course focuses onways that anxiety can interferewith clear thinking and decisiveaction, how it can be a response

to ambiguous situations, how itcan destroy trust, and ways itcan limit communication.Additionally, anxiety can lead toabsenteeism, dissatisfaction,stress, isolation, anddefensiveness.

The course enables selected lawenforcement officers(Command, First Line Super-visors, FTOs, and Patrol) tobecome certified CulturalDiversity Instructors who willteach a one- to two-daycurriculum to other lawenforcement personnel.Additional course subjectsinclude: the concept andimplications of diversity, values,prejudice, acculturation,recruitment and retention,community relations, ethnicityand race relations, gender issues,homophobia, concerns andreactions of the community,verbal and non-verbalcommunication, cognitivefunctions, problem-solving andaction-planning, teachingmethodologies and evaluation.

Participants also become awareof issues related to sexualharassment. Instructors payspecial attention to therelationship between femaleofficers and male Field TrainingOfficers and to men and womenwho work closely together aspartners. The course advisesthat the

It teaches law enforcementdiversity trainers aboutanxieties experienced by newlygraduated non-native officers.

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Nearly 25 percent of the100,000 residents of Lowell,Massachusetts, are fromCambodia.

The most serious obstacle wastheir inability to meetdepartment standards inwriting reports. Thedepartment provided mentors,and the officers were able tosharpen their skills withpractice.

problem of gender andsubordination should be clearlyspelled out to all lawenforcement personnel, using asa basis current sexual harassmentand EEOC guidelines.Traditional female roles inSoutheast Asian cultures, forexample, may heighten thepotential for harassment.

One Community's Experience

The second largest SoutheastAsian population in the U.S.,nearly 25 percent of the 100,000residents of Lowell,Massachusetts, are fromCambodia. Between 1980 and1990, the city experienced a2,000 percent increase in Asianresidents, compared to increasesof 130 percent for Latinos and110 percent for AfricanAmericans. The Caucasianpopulation decreased 6 percentduring the same period.

In response to this growingSoutheast Asian population andto accompanying problems withrising crime rates and gangactivity, the Lowell PoliceDepartment hired fourCambodian sworn officers to aforce that was primarily IrishCatholic. Inspector JeffreyDavidson reports that there wasinitial hostility among the

veteran officers, but that feelingshave changed with time.

The City of Lowell was able torecruit and hire the fourCambodian officers, who hadpassed the police test and beenranked by the Commonwealth'scivil service system, bydeclaring an emergency to thecivil service administration.They declared that they neededlinguistically and culturallyspecific applicants. The civilservice administrators permittedthem to bypass higher rankedcandidates and hire theCambodian officers. All fourofficers were high schoolgraduates, and one held a 2 yearAssociate's degree. They hadbeen in the U.S. since the early1980s, and they were all inrefugee camps prior to theirresettlement in the U.S.

Inspector Davidson agrees withreports of some Californiaofficers that post-academytraining presented the mostdifficult problems for theseCambodian American officers.The most serious obstacle wastheir inability to meetdepartment standards in writingreports. The departmentprovided mentors, and theofficers were able to sharpentheir skills with practice.

39

Another obstacle came from theCambodian community itself.Similar to experiences reportedin some other communities, thefirst two Cambodian Americanofficers were not well receivedby their own community whenthey began to patrol. Therefugees, who harbored badfeelings about law enforcementbecause of their experiences intheir native country, felt that theofficers had "turned on them,"according to Davidson. Theofficers had to exert extra effortto regain the trust of theircommunity, which now acceptsthem as law enforcementprofessionals. Funding from theOffice of Refugee Resettlementhelped build bridges thatimproved this relationship.

The officers had to exert extraeffort to regain the trust oftheir community, which nowaccepts them as lawenforcement professionals.

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CHAPTER 5 Conclusions & SuggestionsIt is vitally important that the city hire [members of newcomer

groups] as part of the police department to break downsocietal barriers that occur when newcomers settle in the community.

Richard Johnson, City ManagerLowell, Massachusetts

Experience has demonstratedthat the successful recruitment,employment, and retention ofethnic minority officers bypolice departments requires acollective and concerted effortfrom a variety of communityindividuals and institutions.

Members of law enforcementwho can beneficially oradversely affect hiring includethe police chief or sheriff andother law enforcementexecutives; police academy andfield training staff; andindividual patrol officers whowork with newly hired ethnicminority officers. Othermunicipal leaders who mayinfluence agency hiring policies,such as mayors or citymanagers, can also encourage orsidetrack agency efforts tobroaden ethnic representation.The rigidity of some hiring sys-tems can impede an agency'sefforts to reach the goal ofimproved service delivery

through a more diverseworkforce. Finally, laborgroups that are organized toprotect the rights of all memberscan affect an agency's ability tohire and promote ethnicminorities.

Members of the newcomercommunity can also assist orhinder the opportunity for theirrepresentation in lawenforcement. Newcomers whoare considering a professionallaw enforcement career can feelnegative pressure from parentsand other family members,spouses, religious leaders, orelders with recognizedtraditional authority.

In addition, potential lawenforcement recruits from newlysettled groups can be seriouslyaffected by self-doubt andpressure as they assess their ownproficiency in language, comfortwith U.S. law and customs, and

Experience has demonstratedthat the successful recruitment,employment, and retention ofethnic minority officers bypolice departments requires acollective and concerted effortfrom a variety of communityindividuals and institutions.

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Newcomers who areconsidering a professional lawenforcement career can feelnegative pressure fromparents and other familymembers, spouses, religiousleaders, or elders withrecognized traditionalauthority.

competing opportunities in otherprofessions. The potential forfailure can be a strongdisincentive to the pursuit of arigorous testing and trainingprogram a disincentive thatmay be overcome only with theassistance of a mentor,counseling, or other guidance.

This document reflects theexperiences and testimony of awide variety of experts. Thoughsome issues surrounding ethnicminority hiring may have beeninadvertently overlooked, it isclear that law enforcementagencies that are ready to recruit,hire, and retain officers fromnewcomer groups must takeseveral steps:

• Begin the process of buildingtrust with members of thenewcomer community. Thisprocess may take substantialtime and effort, and it may suffersetbacks. Persistence and asense of commitment to agencygoals are keys to success.

• Develop and implement acreative and aggressiverecruitment program.

• Identify and resolve chal-lenging issues in the selectionprocess.

• Be sensitive to the feelings ofall newcomer and U.S.bornagency employees.

• Review the academy, training,and new officer probationprocesses to ensure that theymeet the needs of agency goalsto serve and protect all law-abiding community residents.

• Be aware that success in theprotected environment of theacademy does not necessarilymean success in the "real world"of field training and probation.Special assistance might berequired to offset problems withcultural misunderstandings andanxiety. Communication andwriting skills may need constantpractice and reinforcement.

Ethnic minority families maypose barriers to developing lawenforcement/community trust,but specific steps can be taken toaddress them:

• Agencies can educate thenewcomer community aboutU.S. law enforcement operationsand other aspects of the criminaljustice system.

• Officers and communitymembers can lay a foundation oftrust through daily contact andother formal and informalinteraction.

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• Leaders from newcomergroups can work closely withfamilies and law enforcement tobridge cultural gaps and developmutually beneficialrelationships.

• Ethnic minority officers canencourage newcomer families toattend citizen police academieswhere the officers can answerspecific questions and allayconcerns.

The ethnic minority recruithimself or herself must also takeseveral steps toward a moresuccessful experience in joininga local law enforcement agency:

• Concentrate training andpractice in oral and writtenEnglish proficiency.

• Observe and assume thedemeanor and professionalismof veteran law enforcementofficers, both newcomers andU.S.-born, who are successful atperforming their jobs in thecommunity.

• Learn about American culturaltraditions and teach fellowofficers about the nativetraditions of his/her culture.

• Persist in career goals despitepressures, disappointments, andfrustrations, recognizing thatsuccess takes time.

By recruiting, hiring, andretaining ethnic minority swornofficers, the law enforcementagency better equips itself todeliver high qualitypeacekeeping services to allmembers of the community.Hiring ethnic minority officershelps law enforcement lengthenits stride to meet the needs of theentire community.

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SOURCES OF INFORMATION AND ASSISTANCE

Agencies and Organizations

Office of Refugee Resettlement Administration forChildren and Families U.S. Department ofHealth and Human Services370 L'Enfant Promenade, SW6th FloorWashington, DC 20447202-401-9246

Primary Federal agency responsible for refugeeassistance in the U.S. It has fundeddemonstration programs to improve relationshipsbetween refugees and the law enforcementcommunity.

Bureau of Justice AssistanceOffice of Justice ProgramsU.S. Department of Justice633 Indiana Ave., NWWashington, DC 20531202-514-6278

BJA oversees and administers grants programsand other ongoing initiatives to strengthencriminal justice at the state and local levels. Itprovides technical assistance, reports onprograms, and helps law enforcement agenciesand others work to make communities safer. Forgeneral information and materials, call the BJAClearinghouse at 800-688-4252.

National Crime Prevention Council1700 K St., NW 2nd FloorWashington, DC 20006-3817202-466-6272, ext. 140

A private non-profit organization whoseprincipal mission is to enable people tocommunities. NCPC publishes books,

brochures, program kits, and other reproduciblematerials; operates demonstration programs;provides training on a wide range of topics; andoffers technical assistance and referral services.

International Association of Chiefs of Police515 N. Washington St.Alexandria, Virginia 22314-2357800-843-4227

International membership organization of lawenforcement executives that develops policy,offers advocacy and training, and publishesinformation on the full range of policing issues.Can provide law enforcement documents andlegal literature for translation.

Community Relations ServiceU.S. Department of Justice5550 Friendship Blvd.Suite 330Chevy Chase, Maryland 20815301-492-5929

A division of the U.S. Justice Department thatprovides dispute mediation to communitiesexperiencing racial or cultural strife. A sponsorof the Southeast Asian POST program inCalifornia.

Individuals

Sgt. Dan Carlson and Officer David YangSt. Paul Police Department - ACOP100 East 11th St.St. Paul, Minnesota 55101612-488-9272

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Insp. Jeffrey DavidsonLowell Police Department50 Arcand DriveLowell, Massachusetts 01852508-937-3210

Officer Thomas LeeWillows Police Department201 N. Lassen St.Willows, California 95988916-934-3456

Cmdr. Michael NilaAurora Police Department350 North River StreetAurora, Illinois 60506-4154708-859-1700

Sgt. Larry RatcliffCommunity Policing Assistant Doan ThaooanhPortland Police Bureau1111 S.W. 2nd Ave.Portland, Oregon 97204503-823-4106

Chief Robert A. Shadley, Jr.Willows Police Department201 N. Lassen St.Willows, California 95988916-934-3456 or 916-934-8886

David SpisakCalifornia Commission on Peace OfficerStandards and Training1601 Alhambra Blvd.Sacramento, California 95816916-227-3912

Officer Nguyen Van TrongBiloxi Police DepartmentCommunity Relations Division1045 West Howard AvenueBiloxi, Mississippi 39530601-435-6133

Professor Gary WeaverSchool of International StudiesThe American UniversityWashington, DC 20016-8017202-885-1637

Recommended Reading for Further Information

Adler, Nancy. International Dimensions ofOrganizational Behavior, 2nd Edition. MontrealCanada, Kent Publishers, 1991.

Benson, Katy. Black and white on blue, in Police,August 1992.

Bozza, C.M. The future of diversity in America: thelaw enforcement paradigm shift, in Journal ofContemporary Criminal Justice, 8(3), August 1992.

Brown, L. P. Community Policing: A PracticalGuide for Police Officials. NIJ Perspectives onPolicing, No. 12. National Institute of Justice, 1989.

Bureau of Justice Assistance. UnderstandingCommunity Policing, A Framework for Action.U.S. Department of Justice. Washington, DC,August 1994.

California Commission on Peace Officer Standardsand Testing. Introduction to Law Enforcement forSoutheast Asians. Course curriculum outline,February 1-5, 1993.

Commonwealth of Massachusetts. 1994 Entry LevelPolice Officer Examination Orientation andPreparation Guide. Department of PersonnelAdministration.

47

Gaines, L.K., P. Costello, and A. Crabtree. Policeselection testing: balancing legal requirements andemployer needs, in American Journal of Police,VIII(l), 1989.

Edmonsten, B. and J.S. Passel. U.S. immigrationand ethnicity in the 21 st century, in PopulationsToday, October 1992.

Ford Foundation. Changing Relations, Newcomersand Established Residents in U.S. Communities: AReport to the Ford Foundation by the NationalBoard of Changing Relations Project. New York,1993.

Geller, W.A., ed. Local Government PoliceManagement, Municipal Management Series, ThirdEd., International City Management Association,1991.

Ima, K. A Handbook for Professionals Working withSoutheast Asian Delinquent and At-Risk Youth. SanDiego State University, SAY San Diego, Inc., 1992.

Kaminski, R.J. Police minority recruitment:predicting who will say yes to an offer for a job as acop, in Journal of Criminal Justice, 21(4), 1993.

Kelling, G.L. and M.H. Moore. The EvolvingStrategy of Policing. NIJ Perspectives on Policing,No. 4., National Institute of Justice, 1988.

Knee, S. A Research Project To Determine the LawEnforcement Needs of Southeast Asian Refugees inthe Year 1995: To Develop Strategies To MeetThose Needs. (Futures study done for the state POSTCommand College.)

Lowell, Massachusetts, Police Department.Community Policing Lower Highlands/AcreNeighborhood. Grant application, 1993.

Martin, D. and M. Levine. The changing workforcein the 1990s & beyond, in Law EnforcementTechnology, March 1991.

National Crime Prevention Council. Building andCrossing Bridges, Refugees and Law EnforcementWorking Together. Washington, DC, 1994.

Nguyen, L. Divided by cultures; local policestruggling to hire more Asian American officers, inthe Washington Post, July 24,1995, pp. Dl, D6.

North East Multi-Regional Training Curriculum.Cultural Diversity: An lntegral Part of CommunityOriented Policing. Illinois, 1994.

Reaves, B.A. Sheriffs' Departments 1990. BJSBulletin. Bureau of Justice Statistics, U.S.Department of Justice, Washington, DC, 1992.

Reaves, B.A. State and Local Police Departments,1990. BJS Bulletin, Bureau of Justice Statistics,U.S. Department of Justice, Washington, DC, 1992.

Rice, R. Changing demographics: impact on the roleof police, in Law Enforcement Tomorrow. 3(2),December 1994.

Shusta, R., D. Levine, P. Harris, and H. Wong.Multicultural Law Enforcement, Strategies forPeacekeeping in a Diverse Society. Prentice-Hall,Inc., Englewood Cliffs, New Jersey: 1995.

Song, J. Attitudes of Chinese immigrants andVietnam refugees toward law enforcement in theUnited States, in Justice Quarterly, 9(4), December1992.

48

Taft, P.B., Jr. Policing the new immigrant ghettos, inCrime and the New Immigrants, H.M. Launer andJ.E. Palenski, eds. Charles C. Thomas, Publisher:Springfield Illinois, 1989.

Sparrow, M.K. Implementing Community Policing.NIJ Perspectives on Policing, No. 9, NationalInstitute of Justice, 1988.

Strawbridge, P. and D. Strawbridge. A NetworkingGuide to Recruitment, Selection and ProbationaryTraining of Police Officers in Major PoliceDepartments in the United States of America. TheCommonwealth Fund of New York and the LondonMetropolitan Police, John Jay College of CriminalJustice: New York, 1990.

United State Commission on Civil Rights. CivilRights Issues Facing Asian Americans in the 1990s,A Report of the United States Commission on CivilRights. February 1992.

Walker, S. Employment of Black and HispanicPeace Officers, 1983-1988: A Follow-Up Study.University of Nebraska Omaha University,Committee on Research, Omaha, Nebraska, 1989.

Weaver, G. Law enforcement in a culturally diversesociety, in FBI Law Enforcement Bulletin,September 1994.

Winters, C. Psychology test, suits and minorityapplicants, in The Police Journal, LXII(l), January-March 1989.

Wycoff, M.A. and T. Oetmeier. Evaluating PatrolOfficer Performance Under Community Policing:The Houston Experience. National Institute ofJustice, February 1994.

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ENDNOTES

1 Published by the National Crime Prevention Council in 1994 through funding from the Office of RefugeeResettlement, U.S. Department of Health and Human Services, under an Interagency Agreement with the Bureauof Justice Assistance, Office of Justice Programs, U.S. Department of Justice.

This curriculum was developed with the support of the Office of Refugee Resettlement of the U.S.Department of Health and Human Services and the Community Relations Service of the U.S. Department ofJustice.

2 Taft, Policing the New Immigrant Ghettos, P. 12, in Crime and the New Immigrants, ed. by Harold M.Launer and Joseph E. Palenski.

3 Bureau of the Census, 1990 Census of Population.

4 Edmonsten and Passell, 1992.

5 Shusta, R. Multicultural Law Enforcement, Strategies for Peacekeeping in a Diverse Society, p. 9.(from Trojanowicz, Robert and David Carter, "The changing face of America," FBI Law Enforcement Bulletin,Vol. 59, 1990, pp 6-12.)

6 Martin and Levine, 1991, p. 41.

7 Sparrow, 1988.

8 Understanding Community Policing, A Framework for Action, p. 22.

9 The Washington Post, July 24,1995, pp. Dl and D6.

10 Taft, 1989.

11 Ima, 1993.

12 Shusta, 1995. pp. 105-106.

13 Song, 1992., p. 704.

14 Song, 1992., p. 705.

15 Agreement signed by the Portland Police Bureau and the Hmong American Unity of Oregon.

16 National Crime Prevention Council, Building and Crossing Bridges, Refugees and Law EnforcementWorking Together, p. 14.

17 Geller, ed. p. 275.

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18 Geller, ed., p. 272.

19 Geller, ed., p. 275.

20 Walker.

21 Geller, ed., p. 275.

22 Geller, ed., p. 275.

23 Martin and Levine, 1991, p. 37.

24 Geller, ed., p. 276.

25 Gaines, et al., p. 138.

26 Gaines, et al., p. 142.

27 Winters, p. 22.

28 Winters, p. 25.

29 Winters, p. 29.

30 Gaines, et al., p. 145.

31 Ford Foundation, p. 20.

32 The curriculum Pilot Presentation Team in 1993 included: Don "D.K." Abbott (ret. San Diego PoliceDepartment); Suzanne Foucault (Executive Director, San Diego Regional Training Center); Thien Cao (GardenGrove Police Department); Gaylord Gee (California Highway Patrol and former president, Northern CaliforniaPeace Officers Association); Bruce Hartman (Fresno Police Department); Robert Sayaphupha (Oakland PoliceDepartment); Chief Robert Shadley (Willows Police Department); and Dave Spisak (California Peace OfficerStandards and Training).

33 The Washington Post, July 24,1995, p. Dl and D6.

34 Benson, 1992, p.167.

35 Lowell, Massachusetts, Police Department Grant Application, 1993, p. 6.