(1)Existing law requires the Commission on Peace Officer Standards and Training to establish and award certain certificates for peace officers to foster the education and experience necessary to perform general police service duties, as specified. Existing law requires the office of the Chancellor of the California Community Colleges to develop a modern policing degree program, and requires the chancellors office to submit a report on recommendations to the Legislature outlining a plan to implement that program, as specified. Existing law requires the commission to approve and adopt the education criteria for peace officers, based on the recommendations in the report, as specified.

This bill, subject to an appropriation, would establish the Law Enforcement Officer Grant Program under the administration of the Student Aid Commission to provide grants of up to $6,000 per year to individuals enrolled in a modern policing degree program at a California community college who commit to work for 4 years as a peace officer at a law enforcement agency, as specified. The bill would require grant recipients to agree to repay the grant to the state if certain conditions for the grant are not met, except as specified.

The bill would require, subject to an appropriation, the chancellors office to develop, in consultation with specified entities, materials to be distributed to counselors offices in schools serving grades 9 to 12, inclusive. The bill would require those materials to inform high school students about the existence of the modern policing degree program and the grant program described above, among other things. The bill would require the chancellors office to particularly target the materials for students of historically underserved and disadvantaged communities with barriers to higher education access.

(2)Existing law provides for the training and certification of local peace officers, including police and sheriff deputies. Existing law requires criminal justice and delinquency prevention planning districts to be established for the purpose of coordinating local criminal justice activities and planning for the use of state and federal action funds made available through any grant programs.

This bill would require, commencing January 1, 2026, and subject to appropriation by the Legislature, the Board of State and Community Corrections to award grants to local law enforcement agencies that are significantly understaffed in order for the agency to provide hiring bonuses for peace officers employed by that agency. The bill would require a peace officer receiving these funds to agree to work for that agency for at least four years, except as specified. The bill would authorize the board to establish additional guidelines for the allocation of these hiring bonuses.

Date of Hearing: May 1, 2024

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 1839

Author:(Alanis) – As Introduced Ver:January 16, 2024

Urgency: No State Mandated Local Program: No Reimbursable: No

SUMMARY:

This bill creates, subject to appropriation, two grant programs to benefit law enforcement.

Specifically, this bill creates the Law Enforcement Officer Grant Program to be administered by the California Student Aid Commission (CSAC). Beginning January 1, 2026, the program is to provide $6,000 per year, and up to $18,000 total, to a student in a modern policing program at a California Community College (CCC) who commits to working as a peace officer at a qualifying agency, such as county sheriff’s department, local police department, and certain other state entities, for four years within the six years following the student’s graduation from the modern policing program. The bill requires a grant recipient to repay 25% of the total amount of grant funds received for each year the recipient fails to fulfill their commitment. The bill also requires CSAC evaluate the program every two years, beginning December 31, 2031. The bill further allows CSAC to use up to 1.5% of funding appropriated to the grant program for outreach and program administration.

This bill also creates Peace Officers Hiring Grant Program to be administered by Board of State and Community Corrections (BSCC). Beginning January 1, 2026, the BSCC is to provide hiring bonuses of up to $15,000 per eligible police officer to local law enforcement agencies that are significantly understaffed to provide hiring bonuses to qualifying peace officers. To qualify, a peace officer must (a) commit to working at the agency for at least four years, (b) meet all training and background requirements to become a peace officer, and (c) must not have been previously employed as a California peace officer. The bill requires a grant recipient to repay 25% of the total amount of grant funds received for each year the recipient fails to fulfill their four-year commitment. The bill further specifies BSCC may use up to 5% of the funds appropriated for the program each year for the costs of administering the program.

In addition, the bill requires the CCC Chancellor’s Office, subject to appropriation, to develop materials to be distributed to local educational agencies serving grades nine through twelve informing students about the modern policing grant program and the hiring bonuses created by this bill.

FISCAL EFFECT:

1. Ongoing General Fund costs, potentially in the millions of dollars annually, for grants to both grant programs. The bill does not specify how many grants are to be awarded, but a few hundred grantees could result in costs in the millions of dollars annually. To the extent the grantees do not fulfill their commitments and must return grant moneys, costs could be lower.
2. Ongoing General Fund costs of about $550,000 for CSAC to hire three staff to administer the Law Enforcement Officer Grant Program and to implement necessary IT systems. The bill specifies that 1.5% of grant funding could be used towards administration at CSAC.
3. Ongoing General Fund costs, of an unknown amount but potentially in the hundreds of thousands of dollar annually, to the BSCC to administer the Peace Officers Hiring Grant Program. The bill specifies that 5% of grant funding could be used towards administration at BSCC.
4. One-time General Fund costs, likely in the tens of thousands of dollars, to the CCC Chancellor’s Office to develop and distribute certain materials.

According to the Legislative Analyst’s Office, the General Fund faces a structural deficit in the tens of billions of dollars over the next several fiscal years.

COMMENTS:

1. Purpose. According to the author:

A student financial aid grant program specifically tailored for prospective peace officers will help ensure that the ‘school to law enforcement’ pipeline is sufficiently supported to meet California’s goal of a better educated and better trained law enforcement workforce.

1. Prior Legislation. AB 89 (Jones-Sawyer), Chapter 405, Statutes of 2021, among other things, required the Commission on Peace Officer Standards and Training and educational stakeholders develop a modern policing degree program.

Analysis Prepared by: Natasha Collins / APPR. / (916) 319-2081

Date of Hearing: April 16, 2024

Consultant: Elizabeth Potter

ASSEMBLY COMMITTEE ON

Kevin McCarty, Chair

ABPCA Bill Id:

Author:() – As Ver:

SUMMARY:

Establishes the Law Enforcement Officer Grant Program (LEOGP) in higher education settings and creates a grant program, administered by the Board of State and Community Corrections (BSCC), for newly hired peace officers. Specifically, this bill:

1. Establishes the Law Enforcement Officer Grant Program (LEOGP) to provide one-time grant funds to students who commit to working as a peace officer and completes the modern policing degree program.
   
2. Provides that, subject to appropriation, the California Student Aid Commission (CSAC) shall administer the Law Enforcement Officer Grant Program (LEOGP).
   
3. Provides that under LEOGP, one-time grant funds of up to $6,000 dollars per year to each student enrolled, or who has applied for enrollment, on or after January 1, 2026, in a modern policing degree program at a California community college if the student commits to working as a peace officer at a qualifying agency for four years within the six years following the date the student completes the modern policing program.
   
4. States that a “qualifying agency” means a California state agency, county sheriff’s department, local police department, or other California public entity employing peace officers, as specified, or by an agency employing any peace officer that participates in the Peace Officer Standards and Training program (POST).
   
5. Requires CSAC along with POST to publish a list of qualifying agencies employing peace officers by April 15 of each year.
   
6. Requires grant funds must be used to supplement and not supplant other sources of grant financial aid, and may be disbursed in more than one academic year, provided that the total amounts of funds granted to an applicant does not exceed $18,000.
   
7. Provides that a grant recipient shall agree to serve as a peace officer at a qualifying agency for four years and shall have six years, upon completion of the recipient’s modern policing degree, to meet that obligation.
   
8. Requires a grant recipient to agree to repay the state 25 percent of the total received grant funds annually, up to full repayment of the received grant funds, for each year the recipient fails to do one or more of the following :
   
   1. Be enrolled in or have successfully completed a modern policing degree program from a California community college; or
      
   2. While enrolled in the modern policing program, maintain good academic standing; or,
      
   3. Serve as a peace officer at a qualifying agency for four years, which shall be certified by CSAC.
      
9. Provides exceptions, as defined by CSAC, for the requirement of repayments that may include, but shall not be limited to, counting a year towards the required four-year service requirement at a qualifying agency if any of the following occur:
   
   1. The grant recipient has completed at least two years of the service requirement; or
      
   2. The qualifying agency deems the grant recipient to have fulfilled the grant recipient’s contractual requirement, as applicable, for purposes of salary increases, probationary or permanent status, and retirement; or
      
   3. The grant recipient was not able to serve due to the financial circumstances of the qualifying agency, including a decision to not continue the employment of the grant recipient; or
      
   4. The grant recipient has a condition covered under the federal Family and Leave Act of 1993,as specified, or a similar state law; or,
      
   5. The grant recipient was called or ordered to active duty status for more than 30 days as a member of a reserve component of the Armed Forces of the United States.
      
10. Allows CSAC to use up to 1.5 percent of funding appropriated for purposes of outreach and administration.
    
11. Provides that priority for grants shall be afforded to students of historically underserved and disadvantaged communities with barriers to higher education access.
    
12. Allows CSAC to adopt regulations, including any amendments to regulations, necessary for the implementation of the LEOGP.
    
13. Allows CSAC to adopt emergency regulations it deems unnecessary for the implementation of this program, in accordance with the rulemaking provisions of the Administrative Procedure Act, as specified.
    
14. Requires, notwithstanding any other law and without further compliance as specified, any emergency regulations and amendments to the emergency regulations adopted by CSAC shall remain in force and effect until June 30, 2031;
15. States that no rule, policy, or standard of general application issued by CSAC in implementing this shall be subject to the requirements of the Administrative Procedure Act, as specified.
    
16. Requires CSAC to conduct, in partnership with POST, an evaluation of LEOGP to determine the effectiveness of the program in recruiting peace officers.
    
17. Provides that CSAC is encouraged to use qualitative and quantitative measures to quantify the number of peace officer candidates the program recruited, disaggregated by agency type, and the number of peace officers employed, and to describe the effects of the program on the decisions of candidates to enter and remain in the law enforcement field.
    
18. Requires that CSAC provide, with respect to the evaluation , a report to the Department of Finance and the appropriate fiscal and policy committees of the Legislature on or before December 31, 2031, and every two years thereafter.
    
19. Requires CSAC to accept applications for LEOGP beginning on September 1 for the following academic year and shall establish a process and timeline that allows the California Community Colleges to provide applicants with grant eligibility determinations before the deadline for enrolling.
    
20. Requires the Office of the Chancellor of the California Community Colleges (OCCCC), subject to an appropriation, develop written and online materials to be distributed to counselors’ offices in California public and private schools serving grades 9 to 12, inclusive. The materials shall inform high school students about all of the following:
    
    1. The existence of the modern policing degree;
       
    2. The LEOGP, as specified;
       
    3. The existence of hiring bonuses in many California police and sheriffs’ departments, including bonuses for significantly understaffed agencies as specified; and,
       
    4. The personal and community benefits of a career as a police officer or sheriff’s deputy, including average pay, benefits, and the role of law enforcement in creating safer communities.
       
21. Requires the OCCCC to target the materials described in this section for students of historically underserved and disadvantaged communities with barriers to higher education access.
    
22. Requires the OCCCC to consult with representatives of law enforcement administration and law enforcement employees, and community organizations in the development of the materials as specified.
    
23. Requires the BSCC, beginning on January 1, 2026, subject to an appropriation by the Legislature, to award grants to local law enforcement agencies that are significantly understaffed in order for the agency to provide hiring bonuses for peace officers employed by that agency.
    
24. States the hiring bonus may up to $15,000 per eligible peace officer hired.
    
25. Provides that BSCC must require any agency receiving funds for hiring bonuses to require the peace officer receiving these funds to agree to work for that agency for at least four years.
    
26. Provides that BSCC must require any agency receiving funds for hiring bonuses to use these moneys to supplement, no supplant, existing funds used to recruit and employ peace officers.
    
27. Allows BSCC to establish additional guidelines for the allocation of these hiring bonuses to qualifying agencies.
    
28. Allows BSCC to use up to 5 percent of the funds appropriated for the program each year for the costs of administering the program.
    
29. Requires a peace officer who receives hiring bonus funds will agree to repay the state 25% of the total received grant funds annually, up to full repayment of the received hiring bonus funds, for each year the recipient fails to do one or both of the following:
    
    1. Be employed by the local law enforcement agency that awarded the hiring bonus or be employed by another agency employing peace officers that is significantly understaffed until the person has been employed for four years or more with agencies that meet, or met at the time of the person’s initial employment, the definition of significantly understaffed; and/or,
       
    2. Maintain certification as a peace officer.
       
30. Requires POST to certify nonperformance of the commitment to serve at a qualifying agency employing peace officers for four years.
    
31. Provides that any exceptions to the requirement for repayment will be defined by BSCC, and may include, but will not be limited to, counting a year toward the required four-year service requirement at a qualifying agency employing peace officers if a grant recipient is unable to fulfill the four-year employment obligation when any of the following occur:
    
    1. The hiring bonus recipient has completed at least two years of employment;
       
    2. The employer deems the hiring bonus recipient to have fulfilled the grant recipient’s contractual requirement, as applicable, for purposes of salary increases, probationary or permanent status, and retirement;
       
    3. The hiring bonus recipient was not able to serve due to the financial circumstances of the employer, including a decision to not continue the employment of the grant recipient;
       
    4. The hiring bonus recipient has a condition covered under the federal Family and Medical Leave Act of 1993 ,as specified, or similar state law; or,
       
    5. The hiring bonus recipient was called or ordered to active duty status for more than 30 days as a member of a reserve component of the Armed Forces of the United States.
       
32. Defines the following terms for the purposes of the BSCC hiring grant program for new peace officers as follows:
    
    1. “Agency” means a department or agency of a local government, special district, or other political subdivision that employs a peace officer, as specified.
       
    2. “Eligible peace officer” means a person who has met all the requirements, as specified in the Government Code, and all additional training and background requirements imosed by POST to be hired as a peace officer who has not previously been employed as a California peace officer.
       
    3. “Significantly understaffed” means the agency has advertised vacancies for peace officer positions, is ready and willing to hire peace officers, and has had a peace officer employment rate of 10 percent or more below the number of budgeted peace officer positions for at least two calendar years.
       

EXISTING LAW:

1. Establishes the Commission on Peace Officer Standards and Training (POST) to set minimum standards for the recruitment and training of peace officers, develop training courses and curriculum, and establish a professional certificate program that awards different levels of certification based on training, education, experience, and other relevant prerequisites. (Pen. Code, §§ 830-832.10; 13500 et seq.)
   
2. States the powers of POST, including among others, to develop and implement programs to increase the effectiveness of law enforcement, to secure the cooperation of state-level peace officers, agencies, and bodies having jurisdiction over systems of public higher education in continuing the development of college-level training and education programs. (Pen. Code, §§ 830-832.10; 13500 et seq.)
   
3. Requires any person designated as a peace officer, notwithstanding designated exceptions, or any peace officer employed by an agency that participates in a POST program must be at least 21 years of age at the time of appointment. (Gov. Code, § 1031.4, subd. (a).)
   
4. Provides that any person, who as of December 31, 2021, is currently enrolled in a basic academy or is employed as a peace officer by a public entity in California is not subject to the age requirement of 21 years of age. (Gov. Code, § 1031.4, subd. (b).)
   
5. Requires representatives from POST, stakeholders from law enforcement, the California State University, and community organizations to serve as advisors to the office of the Chancellor of the Community Colleges to develop a modern policing degree program. (Pen. Code, § 13511.1, subd (a).)
   
6. Requires the office of the Chancellor of the Community Colleges to report recommendations to the Legislature outlining a plan to implement the modern policing degree program on, or by, June 1, 2023. (Pen. Code, § 13511.1, subd (a).)
   
7. Requires the report to the Legislature to include the following:
   
   1. Focus on courses pertinent on law enforcement including, but not limited to, psychology, communications, history, ethnic studies, law, and courses determined to develop necessary critical thinking skills and emotional intelligence;
      
   2. Allowances for prior law enforcement experience, appropriate work experience, postsecondary education experience, or military experience;
      
   3. Both the modern policing degree program and bachelor’s degree program in the discipline of their choosing as minimum education requirements for employment as a peace officer.
      
   4. Recommendations to adopt financial assistance for students of historically underserved and disadvantaged communities with barriers to higher education access to fulfill the minimum requirements to be adopted for employment as a peace officer. (Pen. Code, § 13511.1, subd (a)(1-4).)
      
8. Requires POST to approve and adopt the education criteria for peace officers within two years from the submission of the report to the Legislature. (Pen. Code, § 13511.1, subd (c).)
   
9. Requires POST to adopt rules establishing minimum standards relating to the recruitment, training and fitness of state and local law enforcement officers. (Pen. Code, §§ 13510 & 13510.5.)
   

FISCAL EFFECT:

Unknown

COMMENTS:

1. Author's Statement: According to the author, “Maintaining well-staffed police and sheriff's departments is crucial for keeping our communities safe. When these agencies do not have enough officers, the safety of the public is at risk. Without enough staff, daytime patrols may be canceled, investigations can be limited, it takes longer for officers to respond to emergencies, and undercover operations might not happen at all. Offering incentives to encourage people to become police officers and deputy sheriffs, along with support for departments struggling to hire due to competition from neighboring agencies, is essential. This approach will help California build a strong pool of qualified candidates, ensuring our police and sheriff's departments are fully staffed and our communities are safer.”
   
2. The Peace Officers Education and Age Conditions for Employment (PEACE) Act: AB 89 (Jones-Sawyer), Chapter 405, Statutes of 2021, enacted the PEACE Act. The PEACE Act changed the age requirement from 18 years of age to 21 years of age to become a California peace officer. The PEACE Act requires the office of the Chancellor of California Community Colleges to develop a modern policing degree program with POST and other stakeholders and submit a report on the recommendations to the Legislature outlining a plan to implement the program on or before June 1, 2023.
   
   According to the analysis from AB 89, the author stated, “Excessive force at the hands of law enforcement that leads to grave injury or death not only tears apart families and communities but erodes trust in law enforcement. This data-driven bill relies on years of study and new understandings of brain development to ensure that only those officers capable of high level decision-making and judgment in tense situations are entrusted with working in our communities and correctional facilities. By requiring new peace officer candidates to be more mature and highly educated, the PEACE Act not only professionalizes policing, but also creates a culture that is significantly less reliant on excessive force. The PEACE Act will transform departments across the state and mark a transition in addressing the root causes behind excessive use of force.”
   
   A joint study by the Riverside Sheriff’s association and UC Riverside stated that “Although not one of the more common topics discussed in police shootings research, the level of education possessed by officers has found its way into other police-related topics such as an officer's commitment to the profession, ability to effectively communicate with others, officer attitude, ability to relate to others, and use of force generally. In their study examining officer education, experience, and use of force, Paoline and Terrill (2007) have provided a comprehensive overview of the literature regarding the effects of education in police work In their own research, Paoline and Terrill found that officers with some higher education (i,e,, some college versus high school diploma) and a 4-year degree were less likely to resort to verbal coercion than officers with a high school education. Moreover, officers with a bachelor's degree were less likely to use physical force than officers with only a high school education.” (Law Journal Library - HeinOnline.org, Kposowa, J. P. (2008). Police officer characteristics and the likelihood of using deadly force. Criminal justice and behavior, 2008, at p.6 [as of Apr. 8, 2024)
   
   This bill seeks to monetarily incentivize adults interested in becoming peace officers by providing educational grants for the cost of education when receiving a degree in modern policing. This bill also seeks to provide hiring grants to new police officers in underserved communities.
   
3. Argument in Support: According to The California Highway Patrol, “AB 1839 would establish the Law Enforcement Officer Grant Program under the administration of the Student Aid Commission to provide grants of up to $6,000 per year to individuals enrolled in a modern policing degree program at a California community college who commit to work for 4 years as a peace officer at a law enforcement agency. The bill would require grant recipients to agree to repay the grant to the state if certain conditions for the grant are not met.
   
   “According to the Public Policy Institute of California, between 2021 to 2022, Ca lost about 1,500 sworn staff and about 100 civilian staff. The decline from 2020 to 2021 was larger—2,100 sworn and 1,100 civilian staff. Over the past two years, staffing levels are down by 4.5% and 3%, respectively.
   
   “AB 1839 helps solve this retention issue by establishing the Law Enforcement Officer Grant Program. By providing financial support to law enforcement students, Ca will open new doors of opportunity to a wide range of individuals from various backgrounds that would otherwise not be given this opportunity.”
   
4. Argument in Opposition: None submitted.
   
5. Related Legislation: AB 1845 (Alanis), would establish the Identifying, Apprehending, and Prosecuting of Resale of Stolen Property Grant Program and would require the Board of State and Community Corrections to award grants, on a competitive basis, to county district attorneys’ offices and law enforcement agencies and to establish minimum standards, funding schedules, and procedures for awarding grants among other things.
   
6. Prior Legislation:
   
   1. AB 89 (Jones-Sawyer), Chapter 405, Statutes of 2021, raised the minimum age for peace officers to 21 and requires the Commission on Peace Officer Standards and Training (POST) and educational stakeholders develop a modern policing degree program.
      
   2. AB 2229 (L. Rivas), Chaptered by Secretary of State - Chapter 959, Statutes of 2022, reenacts the requirement that peace officers be found to be free from any physical, emotional, or mental condition that might adversely affect the exercise of their powers, including bias against race or ethnicity, gender, nationality, religion, disability, or sexual orientation.
      
   3. AB 655 (Kalra), Chaptered by Secretary of State - Chapter 854, Statutes of 2022, required background checks to determine whether a person seeking to be employed as a peace officer exhibits unlawful bias by engaging in a hate group.
      
   4. SB 960 (Skinner), Chaptered by Secretary of State. Chapter 825, Statutes of 2022, removed provisions of existing law requiring peace officers to either be a citizen of the United States or be a permanent resident who is eligible for and has applied for citizenship.
      
   5. AB 846 (Burke), Chapter 322, Statutes of 2020, provided that evaluations of peace officers shall include an evaluation of bias against race or ethnicity, gender, nationality, religion, disability, or sexual orientation
      

REGISTERED SUPPORT / OPPOSITION:

Support

California Association of Highway Patrolmen
California Contract Cities Association
California Police Chiefs Association
California State Sheriffs' Association
California Statewide Law Enforcement Association
League of California Cities
Los Angeles County Professional Peace Officers Association
Los Angeles County Sheriff's Department
Peace Officers Research Association of California (PORAC)

Opposition

None

Analysis Prepared by:

Date of Hearing: March 12, 2024

ASSEMBLY COMMITTEE ON HIGHER EDUCATION

Mike Fong, Chair

ABPCA Bill Id:AB 1839 (

Author:Alanis) – As Introduced Ver:January 16, 2024

[Note: This bill is doubled referred to the Assembly Committee on Public Safety and will be heard by that Committee as it relates to issues under its jurisdiction.]

SUBJECT: Peace officers: education and hiring grants

SUMMARY: Establishes the Law Enforcement Officer Grant Program (LEOGP) provide one-time grant funds to students who commit to working as a peace officer and completes the modern policing degree program. Also requires the Board of State and Community Corrections to award grants to local law enforcement agencies that are significantly understaffed in order for the agency to provide hiring bonuses for peace officers employed by that agency. Specifically, this bill:

1. Specifies that, subject to appropriation, the California Student Aid Commission (CSAC) shall administer the Law Enforcement Officer Grant Program (LEOGP). Under the program, CSAC will provide one-time grant funds of up to $6,000 per year to each student enrolled, or who has applied for enrollment, on or after January 1, 2026, in a modern policing degree program at a California community college (CCC) if the student commits to working as a peace officer at a qualifying agency for four years within the six years following the date the student completes the modern policing degree program.
   1. Defines, for purposes of this section, “qualifying agency” to a California state agency, county sheriff’s department, local police department, or other California public entity employing peace officers, as specified; and,
   2. Requires CSAC, in coordination with the Commission on Peace Officer Standards and Training (POST), to publish a list of qualifying agencies employing peace officers by April 15 of each year.
2. Specifies that LEOGP funds will be used to supplement and not supplant other sources of grant financial aid, and may be disbursed in more than one academic year, provided that the total amount of funds granted to an applicant does not exceed $18,000.
3. Requires that a LEOGP recipient will agree to serve as a peace officer at a qualifying agency for four years and will have six years, upon completion of the recipient’s modern policing degree, to meet that obligation. Except as provided in paragraph (2), a grant recipient shall agree to repay the state 25% of the total received grant funds annually, up to full repayment of the received grant funds, for each year the recipient fails to do one or more of the following:
   1. Be enrolled in or have successfully completed a modern policing degree program from a California community college;
   2. While enrolled in the modern policing degree program, maintain good academic standing; and,
   3. Serve as a peace officer at a qualifying agency for four years, which shall be certified by the commission.

1. Specifies that any exceptions to the requirement for repayment shall be defined by the commission, and may include, but shall not be limited to, counting a year towards the required four-year service requirement at a qualifying agency if any of the following occur:
   1. The grant recipient has completed at least two years of the service requirement;
   2. The qualifying agency deems the grant recipient to have fulfilled the grant recipient’s contractual requirement, as applicable, for purposes of salary increases, probationary or permanent status, and retirement;
   3. The grant recipient was not able to serve due to the financial circumstances of the qualifying agency, including a decision to not continue the employment of the grant recipient;
   4. The grant recipient has a condition covered under the federal Family and Medical Leave Act of 1993 or similar state law;
   5. The grant recipient was called or ordered to active duty status for more than 30 days as a member of a reserve component of the Armed Forces of the United States;
2. Specifies that CSAC may use up to 1.5 % of funding appropriated for purposes of this section for outreach and administration.
3. Establishes that priority for grants shall be afforded to students of historically underserved and disadvantaged communities with barriers to higher education access.
4. Authorizes CSAC to adopt regulations, including any amendments to regulations, necessary for the implementation of the LEOGP. CSAC may adopt emergency regulations it deems necessary for the implementation of this program, in accordance with the rulemaking provisions, as specified.

• 1. Notwithstanding any other law and without further compliance as specified, any emergency regulations and amendments to the emergency regulations adopted pursuant to 7) shall remain in force and effect until June 30, 2031; and
  2. No rule, policy, or standard of general application issued by CSAC in implementing this CSAC shall be subject to the requirements of the Administrative Procedure Act, as specified.

1. Requires CSAC to conduct, in partnership with the POST, an evaluation of the LEOGP to determine the effectiveness of the program in recruiting peace officers. The commission is encouraged to use qualitative and quantitative measures to quantify the number of peace officer candidates the program recruited, disaggregated by agency type, and the number of peace officers employed, and to describe the effects of the program on the decisions of candidates to enter and remain in the law enforcement field. CSAC will provide, with respect to the evaluation, a report to the Department of Finance and the appropriate fiscal and policy committees of the Legislature on or before December 31, 2031, and every two years thereafter.
2. Specifies that CSAC will accept applications for the LEOGP beginning on September 1 for the following academic year and shall establish a process and timeline that allows the CCC to provide applicants with grant eligibility determinations before the deadline for enrolling.
3. Requires the Office of the Chancellor of the CCC (CCCCO), subject appropriation, develop written and online materials to be distributed to counselors’ offices in California public and private schools serving grades 9 to 12, inclusive. The materials shall inform high school students about all of the following:
   1. The existence of the modern policing degree;

• 1. The LEOGP, as specified;
  2. The existence of hiring bonuses in many California police and sheriffs’ departments, including bonuses for significantly understaffed agencies as specified; and,
  3. The personal and community benefits of a career as a police officer or sheriff’s deputy, including average pay, benefits, and the role of law enforcement in creating safer communities.

1. Requires the CCCCO to target the materials described in this section for students of historically underserved and disadvantaged communities with barriers to higher education access.
2. Requires the CCCCO to consult with representatives of law enforcement administration and law enforcement employees, and community organizations in the development of the materials as specified.
3. Requires, commencing January 1, 2026, and subject to appropriation, the Board of State and Community Corrections (the board) to award grants to local law enforcement agencies that are significantly understaffed in order for the agency to provide hiring bonuses for peace officers employed by that agency.
   1. A hiring bonus may be up to $15,000 per eligible peace officer hired.
4. Specifies that the board will require any agency receiving funds for hiring bonuses to require the peace officer receiving these funds to agree to work for that agency for at least four years.
   1. The board will require any agency receiving funds for hiring bonuses pursuant as specified to use these moneys to supplement, not supplant, existing funds used to recruit and employ peace officers;
   2. The board may establish additional guidelines for the allocation of these hiring bonuses to qualifying agencies; and,

• 1.  The board may use up to 5% of the funds appropriated for the program each year for the costs of administering the program.

1. Except as specified, a peace officer who receives hiring bonus funds will agree to repay the state 25% of the total received grant funds annually, up to full repayment of the received hiring bonus funds, for each year the recipient fails to do one or both of the following:
   1. Be employed by the local law enforcement agency that awarded the hiring bonus or be employed by another agency employing peace officers that is significantly understaffed until the person has been employed for four years or more with agencies that meet, or met at the time of the person’s initial employment, the definition of significantly understaffed; and,
   2. Maintain certification as a peace officer.
2. Specifies that the nonperformance of the commitment to serve at a qualifying agency employing peace officers for four years will be certified by the POST.
3. Establishes that any exceptions to the requirement for repayment will be defined by the board, and may include, but will not be limited to, counting a year toward the required four-year service requirement at a qualifying agency employing peace officers if a grant recipient is unable to fulfill the four-year employment obligation when any of the following occur:
   1. The hiring bonus recipient has completed at least two years of employment;
   2. The employer deems the hiring bonus recipient to have fulfilled the grant recipient’s contractual requirement, as applicable, for purposes of salary increases, probationary or permanent status, and retirement;
   3. The hiring bonus recipient was not able to serve due to the financial circumstances of the employer, including a decision to not continue the employment of the grant recipient;
   4. The hiring bonus recipient has a condition covered under the federal Family and Medical Leave Act of 1993 (29 U.S.C. Sec. 2601 et seq.) or similar state law; and,
   5. The hiring bonus recipient was called or ordered to active duty status for more than 30 days as a member of a reserve component of the Armed Forces of the United States.

1.  Specifies that for purposes of (13-17) above, the following definitions apply:
   1. “Agency” means a department or agency of a local government, special district, or other political subdivision that employs a peace officer, as specified;
   2. “Eligible peace officer” means a person who has met all requirements as specified and all additional training and background requirements imposed by POST to be hired as a peace officer and who has not previously been employed as a California peace officer; and,
   3. “Significantly understaffed” means the agency has advertised vacancies for peace officer positions, is ready and willing to hire peace officers, and has had a peace officer employment rate of 10 percent or more below the number of budgeted peace officer positions for at least two calendar years.

EXISTING LAW:

1. Establishes the Commission on Peace Officer Standards and Training (POST) to set minimum standards for the recruitment and training of peace officers, develop training courses and curriculum, and establish a professional certificate program that awards different levels of certification based on training, education, experience, and other relevant prerequisites. (Penal Code (PEN), Sections 830-832.10; 13500 et seq.)
2. States the powers of POST, including among others, to develop and implement programs to increase the effectiveness of law enforcement, to secure the cooperation of state-level peace officers, agencies, and bodies having jurisdiction over systems of public higher education in continuing the development of college-level training and education programs. (PEN Sections

830-832.10; 13500, et seq.)

1. Requires any person designated as a peace officer, notwithstanding designated exceptions, or any peace officer employed by an agency that participates in a POST program must be at least 21 years of age at the time of appointment. (Government Code (GOV) Section

1031.4(a).)

1. Provides that any person, who as of December 31, 2021, is currently enrolled in a basic academy or is employed as a peace officer by a public entity in California is not subject to the age requirement of 21 years of age. (GOV Section 1031.4(b).)
2. Requires representatives from POST, stakeholders from law enforcement, the California

State University (CSU), and community organizations to serve as advisors to the office of the

Chancellor of the CCC (CCCCO) to develop a modern policing degree program. (PEN

Section 13511.1(a).)

1. Requires the CCCCO to report recommendations to the Legislature outlining a plan to implement the modern policing degree program on, or by, June 1, 2023. (PEN Section

13511.1 (a).)

1. Requires the report to the Legislature to include the following:
   1. Focus on courses pertinent on law enforcement including, but not limited to, psychology, communications, history, ethnic studies, law, and courses determined to develop necessary critical thinking skills and emotional intelligence;
   2. Allowances for prior law enforcement experience, appropriate work experience, postsecondary education experience, or military experience;
   3. Both the modern policing degree program and bachelor’s degree program in the discipline of their choosing as minimum education requirements for employment as a peace officer; and,
   4. Recommendations to adopt financial assistance for students of historically underserved and disadvantaged communities with barriers to higher education access to fulfill the minimum requirements to be adopted for employment as a peace officer. (PEN Section 13511.1 (a)(1-4).)
2. Requires POST to approve and adopt the education criteria for peace officers within two years from the submission of the report to the Legislature. (PEN Section 13511.1, (c).)
3. Requires POST to adopt rules establishing minimum standards relating to the recruitment, training and fitness of state and local law enforcement officers. (PEN Sections 13510 &

13510.5)

FISCAL EFFECT: Unknown

COMMENTS: Purpose. According to the author, “For years, California has been on a slow march toward a higher minimum standard for peace officer eligibility. The enactment of AB 89 (Jones-Sawyer, Chapter 405, Statutes of 2021) helped focus this goal by giving California’s community colleges the authority to create a degree program on Modern Policing. This higher threshold of eligibility will reduce the pool of peace officer candidates thus impacting law enforcement agencies already struggling with recruitment and retention.”

“A student financial aid grant program specifically tailored for prospective peace officers will help ensure that the ‘school to law enforcement’ pipeline is sufficiently supported to meet California’s goal of a better educated and better trained law enforcement workforce.”

Background. According to information provided by the author, between 2019 and 2022 there was a net decrease of 4,076 peace officers in California. The number of POST regular basic certificates (required for employment as a peace officer for most agencies) fell from a high of 4,551 awarded in 2020 to 2,761 in 2022. Many agencies, but not all, have significant recruitment problems. The Los Angeles Police Department had a net loss of 749 peace officer positions between 2019 and 2022. The Los Angeles Sheriff’s Department had a net loss of 315 positions. The Richmond Police Department had a net loss of 58 positions, but based on its current staffing level of 98 peace officer position, this was an astounding reduction in law enforcement capacity for that city.

Modern policing degree. Assemblymember Jones-Sawyer’s AB 89 (Chapter 405, Statutes of 2021) established a minimum hiring age of 21 and education requirement for peace officers. The CCCCO was tasked with producing a report with recommendations to the Legislature outlining a plan to implement a modern policing degree program. That report was published on November 8^th, 2023.

The Taskforce was comprised of 14 members representing a diversity of community college faculty and administrators, law enforcement professionals, and stakeholders including representatives from the Academic Senate for CCC (ASCCC), the Student Senate for California Community Colleges (SSCCC), POST, student services leaders, and non-profit/community-based organizations to generate recommendations for developing the degree program. The Taskforce held nine public meetings between November 2022 and June 2023.

The report identified that the courses in a Modern Policing Degree should include those listed below that are outlined in AB 89:

1. Psychology.
2. Communications.
3. History.
4. Ethnic Studies.
5. Law.
6. Those determined to develop necessary critical thinking skills and emotional intelligence.

Additionally, the report recommended the development of the qualities, competencies, values, and desirable characteristics identified in the AB 89 Taskforce’s Student Graduate Profile should be incorporated into either existing or new courses that are part of the degree.

In addition to the content identified in AB 89, the numerous courses and topics were recommended to be considered for incorporation into a Modern Policing Degree curriculum and contextualized to the profession as contributing to an officer’s critical thinking skills, emotional intelligence, and lowered use of force.

The CCCCO, in conjunction with the ASCCC, was directed in the report to convene subject matter experts to develop the Modern Policing Degree curriculum pattern and requirements as necessary, utilizing the existing C-ID (Course Identification Number) process to facilitate development of model curriculum templates and—where courses for the Modern Policing Degree do not already exist—course descriptors to ensure consistency in AA/AS in Policing.

The report also recommended requiring colleges offering a Modern Policing Degree to be prescriptive in determining which courses within a general education category are mandatory and encouraging colleges, whenever feasible, to allow for double-counting of core degree requirements with general education coursework to help facilitate degree completion. The report also encourages colleges to offer courses asynchronously and in other modalities, scheduling types, and competency-based education approaches where appropriate to the content, activities, and outcomes of a course to maximize flexible learning opportunities for students.

Impact of higher education in policing. According to a survey conducted by Christine Gardiner, Associate Professor of Criminal Justice at Cal State Fullerton, a nation-wide survey of 958 agencies found that about 30.2% of peace officers in the U.S. have a four-year college degree, 51.8% have a two-year degree, while 5.4% have a graduate degree.

According to a 2016 study by the Center on Juvenile and Criminal Justice, found that increased employment screening tests, high education requirements and augmented training hours lowers departmental use of force complaints. The study cited numerous examinations of college educated officers that indicated that college educated officers have less authoritarian beliefs, exhibit enhanced communication skills, have overall heightened job performance, and tend to receive fewer complaints.

Arguments in support. The California Statewide Law Enforcement Association wrote that, “Between 2021 and 2022, California law enforcement agencies lost approximately 1,500 members of sworn staff and 100 members of civilian staff. Losses experienced between 2020 and 2021 were even greater, with a reduction of approximately 2,100 sworn staff and 1,100 civilian staff. To further underscore these staffing deficiencies, the Public Policy Institute of California reports that the number of patrol officers per 100,000 is at its lowest since 1991. Something must be done to address these decreasing numbers. In order to recruit well trained, educated individuals to the law enforcement profession, incentives such as the Law Enforcement Officer Grant Program must be created. Such an investment in the law enforcement profession will create greater support for peace officers and help fortify the recruitment and retention of such important roles.”

Prior Legislation. AB 89 (Jones-Sawyer), Chapter 405, Statutes of 2021, raised the minimum age for peace officers to 21 and requires the Commission on POST and educational stakeholders develop a modern policing degree program.

REGISTERED SUPPORT / OPPOSITION:

Support

California Association of Highway Patrolmen

California Contract Cities Association

California Statewide Law Enforcement Association

Opposition

None on file

Analysis Prepared by: Kevin J. Powers / HIGHER ED. / (916) 319-3960