Next Steps for Reform
14 MARCH 2017

 

EXECUTIVE SUMMARY
This Framework sets forth an ambitious agenda for 2017 on a wide range of reforms
including community policing, training, use of force, manpower and supervision, and the related
issues of transparency and accountability.
Many of the challenges addressed by this framework are years – sometimes decades – in
the making and therefore cannot be fixed overnight, or even in a single year. CPD is committed
to a multi-year transformation effort focused on providing officers with best in class training as
well as the tools necessary to effectuate strategic 21st century policing. CPD is also committed to
ensuring that the multi-year transformation effort values community participation, transparency,
accountability and the highest degree of professional conduct. To advance this effort, CPD will
engage in a multi-year planning process in 2017 that will build a roadmap to address many of the
findings of both the Department of Justice as well as Mayor Emanuel’s Police Accountability
Task Force (PATF). The main elements of the Framework for Reform for 2017 include:
Better Community Policing. CPD will work with the newly formed Community
Policing Advisory Panel (CPAP) and with Chicago’s communities to reinvigorate community
policing in Chicago. This reflects CPD’s recognition that building relationships of trust with the
community serves as the cornerstone of effective 21st century policing. CPD is fully committed
to restoring community policing as the center of CPD’s policing efforts. Once CPD receives
recommendations from CPAP, it will promptly review them and develop a strategy for
implementation.
Better Training. Training lies at the core of effective and constitutional policing. CPD
officers are demanding better training and we hear them loud and clear. We recognize that we
must do a better job of providing the tools, tactics, techniques, and knowledge to our officers and
supervisors. Training must be moved front and center in the Department, and the Framework
includes many components that will accomplish that task.
•

•

•

CPD recently formed a Training Oversight Committee (TOC), chaired by the First
Deputy Superintendent, that is now responsible for overseeing all aspects of training,
from recruit training through in-service training.
CPD will be making major changes and improvements in its Academy recruit training
program, its Field Training Officer program (the stage of training that immediately
follows recruit training), and in the training provided to personnel who are becoming
supervisors (sergeants, lieutenants, captains, and commanders). The curricula for
these training programs will be comprehensively reviewed and overhauled. FTO
training and supervisory training will emphasize critical skills needed to supervise
recruits in the field, including leadership, supervision, ethics, and diversity, among
others.
CPD will expand and improve its in-service training, including greater emphasis on
scenario-based training, and developing a broader set of training courses that meet the
needs of officers and their supervisors. For example, CPD is developing a new inservice training course on its revised use of force policies (see below), which will be
provided to officers in the near future.

i

 •

CPD will begin decentralizing certain aspects of training through a cadre of training
lieutenants and training sergeants who will be specially selected and trained for those
roles.

Improved Manpower and Supervision. CPD will also be taking a number of steps to
ensure it is deploying its manpower efficiently and effectively, such as the following:
•

•

CPD has engaged outside consultants to conduct a CPD deployment analysis
designed to determine whether CPD officers are being properly deployed across and
within districts. The results of that analysis are expected in 2017 and will drive
potential changes in deployment and staffing.
In 2017, CPD will continue to add a significant number of additional supervisors.
The goal is to reduce the number of officers that sergeants will supervise, and thereby
improve the quality of officer supervision.

Revised Guidance on Use of Force. CPD has recognized the need to revise and upgrade
its use of force policies. A new set of draft policies was posted for public review and comment
in October 2016, and elicited hundreds of comments from inside CPD and from the public. CPD
has carefully reviewed and analyzed those comments, and has made further revisions in response
to the comments. A second draft was posted for public comment in early March 2017. CPD
will finalize and issue its new use of force policies following the conclusion of the public
comment period and the review of those comments. These new policies emphasize:
•
•
•
•

The sanctity of life
Objectively reasonable and proportional use of force
De-escalation and force mitigation
Limitations on the use of deadly force

In addition to setting forth the framework for using force, the revised policies address the
appropriate use of OC spray, canines, and Tasers.
CPD will be developing new systems for force reporting and review of officer uses of
force, and will create a force review unit, which will review uses of force, identify patterns and
trends, and recommend modifications in training and tactics that relate specifically to the use of
force.
Transparency and Accountability. To provide important information to the public,
CPD will be issuing a year-end Annual Report for 2016. The Report will provide crime and
other data for all districts. In addition:
•
•
•

CPD will continue community outreach efforts and will seek community input in the
future on key CPD policy changes, as it did on the use of force policies.
CPD will roll out body worn cameras to the remaining CPD districts where officers
do not yet have them.
CPD will continue its work with the University of Chicago Crime Lab on officer
wellness issues to develop a system that provides additional support to officers.

ii

 •
•
•

To improve the process for reporting officer misconduct, CPD will publicly post
information regarding the complaint process.
CPD will internally disseminate information regarding the implementation of a
hotline for CPD members to anonymously report officer misconduct.
CPD will work to improve the quality and timeliness of investigations by the Bureau
of Internal Affairs (“BIA”).

This Framework is not intended to be a detailed project plan. A detailed project plan is in
development within CPD and will be used to drive toward accomplishing the broad objectives
identified by this Framework in 2017.
**********************************
While reform is critical, so is the articulation of a compelling crime fighting strategy. In
2017, CPD has made significant changes to address violence in high crime areas. These changes
include combining the use of predictive data analytics with human knowledge about high crime
areas to make predictions about where shootings were likely to occur. This analysis serves as the
basis for patrol missions and deployments in an attempt to prevent shootings from occurring in
the first place. This new crime fighting approach was launched in early 2017 in the Englewood
(007) and Harrison (011) police districts, the two districts responsible for over a third of 2016’s
violence. This approach is already showing encouraging early results. In February 2017, the 7th
District saw a nearly 60% reduction in shooting incidents compared to February 2016. Also in
February 2017, the 11th District saw a nearly 40% reduction in shooting incidents compared to
February 2016. This strategy will be expanded to all of our high crime districts in 2017. In
addition to this new crime fighting approach, CPD will be adding 970 new sworn positions over
the next two years. These new officers and supervisors will also play a significant role in CPD’s
efforts to reduce crime in 2017 and beyond.
This Framework recognizes that the crime fight is not just about deploying new
capabilities or additional resources, but also about strengthening the relationship between CPD
and the community. Reform is a critical part of the crime fight and will ultimately lead to more
effective policing. CPD looks forward to working with its personnel, the Chicago community,
and other stakeholders to achieve these important and attainable goals.

iii

 TABLE OF CONTENTS
I.

CPD will work to reinvigorate community policing to rebuild community trust and
solve crime. ........................................................................................................................ 1

II.

CPD will work to improve the QUANTITY AND QUALITY of training
THROUGHOUT THE DEPARTMENT. ....................................................................... 2

III.

A.

CPD Will Reform the Structure of its Training Program to Directly Address
Officers’ Training Needs. ....................................................................................... 3

B.

CPD’s Leadership at the Training Academy Will Work to Improve the Quality of
Instruction. .............................................................................................................. 3

C.

CPD Is Re-Examining and Reforming Its Recruit and In-Service Training
Curriculum to Ensure Consistency with CPD Policies. .......................................... 4

D.

CPD Will Continue and Expand Live Scenario-Based Training on the Use of
Force to Provide Officers with Additional Skills and Tools................................... 5

E.

CPD Will Improve its Field Training Officer (FTO) Program to Reinforce
Policies and Practices Learned at the Training Academy. ...................................... 5

F.

CPD Will Expand and Improve In-Service Training to Provide Ongoing
Instruction on the Most Relevant Policing Topics. ................................................. 6

G.

CPD Will Continue and Expand Procedural Justice Training to Address Implicit
Bias and Facilitate Safe and Lawful Policing. ........................................................ 7

H.

CPD Will Provide Refresher Investigatory Stop Report (ISR) Training. ............... 7

I.

CPD Will Continue to Provide Crisis Intervention Team (CIT) Training and
Expand Resources Dedicated to CIT to Better Serve Individuals with Mental
Health Conditions or in Mental Health Crisis......................................................... 8

J.

CPD Will Begin to Address Deficiencies in its Training Facilities to Align with
National Best Practices. .......................................................................................... 9

K.

CPD Will Seek Officer Involvement in Training. .................................................. 9

CPD Will work to provide officers with the SUPERVISION required to perform
their duties effectively. ...................................................................................................... 9
A.

CPD will conduct a deployment study to assess manpower needs and deployment
allocation. ................................................................................................................ 9

B.

CPD Is Working to Limit the Span of Control, or Number of Officers that
Sergeants Will Supervise to Improve Supervision. ................................................ 9

iv

 IV.

V.

C.

CPD Will Improve Sergeant Training to Strengthen CPD Leadership and
Management. ......................................................................................................... 10

D.

CPD Will Ensure that the Watch Operations Lieutenants (WOL) Provide
Appropriate Supervisory Oversight Throughout the Department. ....................... 10

E.

CPD Will Increase Transparency in CPD’s Merit Promotions Process to Develop
Qualified and Valued Leaders. ............................................................................. 10

CPD will continue to address use of force policies and provide officers with the
Skills and tools necessary to address conflict situations. ............................................. 11
A.

CPD Has Revised and Will Continue Revising and Updating Use of Force
Policies to Provide Clearer Guidance for Conflict Situations. ............................. 11

B.

CPD Will Improve its Policies on Use of Force Reporting, Assessment, Review
and Record-Keeping. ............................................................................................ 12

C.

CPD Will Create a Force Review Unit to Analyze Patterns and Trends in CPD’s
Uses of Force. ....................................................................................................... 13

D.

CPD Will Improve Data Collection and Analysis Regarding its Use of Force to
Produce Accurate and Reliable Data. ................................................................... 14

CPD will continue to work to improve its police accountability systems to identify
police misconduct and hold officers accountable in a fair and consistent manner. .. 14
A.

CPD Will Improve Annual and Periodic Public Reporting to Enhance
Transparency. ........................................................................................................ 15

B.

CPD Will Roll Out Body-Worn Cameras to the Remaining Districts to Improve
Transparency and Accountability. ........................................................................ 15

C.

CPD Will Work to Develop a System to Improve Communications Regarding
Officer Support to Provide Sufficient Resources to Meet Officers’ Wellness
Needs..................................................................................................................... 15

D.

CPD Will Improve the Process for Reporting and Investigating Misconduct to
Ensure that the Process is Consistent, Transparent, Reliable and Accessible to
Both Officers and the Community. ....................................................................... 16

E.

The Bureau of Internal Affairs (BIA) Will Improve its Complaint Investigations
Policies to Produce More Timely and Thorough Investigations. ......................... 17

F.

CPD Will Work to Ensure that Discipline is Consistent and Transparent. .......... 17

G.

CPD Will Work to Improve the Training, Workload and Personnel Management
of BIA. .................................................................................................................. 18

v

 H.

CPD Will Continue its Community Engagement to Increase its Data/Information
Collection and Public Information Sharing. ......................................................... 18

vi

 INTRODUCTION
The City of Chicago Police Department (CPD) has adopted and is implementing the
following Training and Reform Framework for 2017 (the Framework) to ensure sustainable,
constitutional, and effective policing in the City of Chicago. This Framework provides clear
guidance to City leaders, CPD personnel, and the community concerning CPD’s reform goals
and priorities for the coming year.
An important focus of the Framework for 2017 is community policing – namely, reengaging and collaborating with communities to fight crime. A second major focus of the
Framework for 2017 is to make sure CPD officers have the tools, training, resources, and
guidance needed to fulfill their sworn mission. A third focus is to continue CPD’s efforts to
address issues concerning officer use of force, including revised use of force policies and
improved training. A final focus is to make important improvements in the system for holding
CPD officers accountable for misconduct in a fair and consistent manner. The Framework builds
on the progress CPD has achieved to date on these issues, including matters identified by the
Police Accountability Task Force (PATF) and the Department of Justice, and provides a
roadmap for the advances and improvements CPD will implement as a part of its efforts to
achieve these goals in 2017, and beyond.
The men and women of CPD are our most valuable asset. They perform a difficult and
dangerous job on a daily basis, a job that often requires them to make split-second, life-and-death
decisions based on limited information, and to make enormous sacrifices to serve the citizens of
our community. Constitutional policing, effective crime-fighting strategies, and community
engagement go hand-in-hand, and reform is critical to combat crime, rebuild trust with members
of the community, and ensure accountability.
I.

CPD WILL WORK TO REINVIGORATE COMMUNITY POLICING TO
REBUILD COMMUNITY TRUST AND SOLVE CRIME.

One of CPD’s top priorities for 2017 is reinvigorating community policing, and
specifically ensuring that the philosophy of community policing is the foundation for CPD’s
crime fighting efforts and remains closely tied to many of the department’s most significant
reforms of policies, training, supervision, and accountability. For the community policing
strategy to succeed, it has to be informed and co-owned by community partners and officers
alike. To that end, in January 2017, CPD convened the Community Policing Advisory Panel
(CPAP), a strategic planning group led by Bureau of Patrol Chief Fred Waller. The CPAP
consists of experts in the field, members of the CPD Command Staff and Chicago community
leaders, and has been charged with preparing a comprehensive report proposing ways the
Department can engage and collaborate with communities to fight crime and restore trust.
CPAP will develop a series of written recommendations outlining strategies for
enhancing community policing, and issue a report, by the end of the first quarter of 2017. The
recommendations will be based on the premise that community policing is the Department’s core
philosophy and not just a program. The following major components will be addressed in
CPAP’s recommendations:

1

 1.

Strategies for breaking down barriers between youth and the police, with
input from Chicago youth;

2.

A role for all city departments so the community policing plan can
leverage all resources available to communities;

3.

Recommendations to align CPD resources with the new strategy in order
to enhance the prospects for success; and

4.

A method to evaluate the plan and its impact on crime and on public
perception of and trust in police.

CPD will work to implement CPAP’s recommendations.
II.

CPD WILL WORK TO IMPROVE THE QUANTITY AND QUALITY OF
TRAINING THROUGHOUT THE DEPARTMENT.

Training is paramount to ensure that officers are provided with the tools and guidance
necessary to perform their jobs, stay safe, protect the civil rights and liberties of members of the
community, and ensure that needed reforms are implemented and sustained.
In 2016, CPD started the process of assessing and improving the training offered to new
recruits as well as experienced officers. Following an intensive review of its training function,
CPD is now in the process of implementing a set of comprehensive reforms that affect all aspects
of training. Beginning in the second half of 2016:
•

CPD established a Training Oversight Committee (TOC) comprised of key CPD
command staff members and other CPD personnel involved in the training function.
The Committee is responsible for establishing, implementing and overseeing all
aspects of training, including recruit training, the Field Training Officer (FTO)
program, supervisory training, and in-service training. Among other things, it will be
responsible for preparing short-term and long-term strategic plans for training,
conducting periodic needs assessments, soliciting and obtaining feedback on the
quality of training from CPD officers and external stakeholders who have important
perspectives on CPD training.

•

CPD also embarked on an aggressive recruitment drive to increase the number of
FTO positions by 92. The new FTOs will provide essential guidance and feedback to
probationary police officers as they transition out of the Training Academy and into
service in the districts.

•

CPD developed a 16-hour, in-service course focused on force mitigation principles,
skills and tactics that was rolled out in September 2016. With funding assistance
from the Department of Justice, CPD’s Training Academy developed the course with
input from the Los Angeles Police Department and a large group of nationally
recognized experts. Incorporating national best practices, the training further equips
officers to de-escalate conflicts safely, recognize the signs of mental illness, trauma
and crisis situations, and, as a last resort, respond quickly and appropriately when
2

 force is necessary. The course consists primarily of facilitated discussion, skill drills,
and live, scenario-based training – a shift in how CPD conducts continuing education
for officers. Since September of 2016, approximately 1,000 CPD officers have
completed the 16-hour training.
CPD commits to improving its training in 2017. As a result of information and feedback
provided by CPD officers who have consistently expressed the need for more and better training,
CPD is working to improve training for both new recruits and veteran officers. CPD is
incorporating officers’ concerns into a training program that will address all aspects of their
duties. CPD will continue to implement a broad set of reforms, including a top to bottom review
of the recruit curriculum taught at CPD’s Academy, enhancement of the FTO program, and
additional in-service training courses. The revised training program will include, but will not be
limited to, the following:
A.

B.

CPD Will Reform the Structure of its Training Program to Directly Address
Officers’ Training Needs.
1.

Aspects of the training function will be decentralized in order to assist
with the implementation of a robust program of in-service training. In late
March 2017, CPD will begin planning for the provision of in-service
training using a “train the trainers” model. Under this model, the Training
Academy will train district lieutenants and sergeants, who will then
provide decentralized training to officers.

2.

As a result of officer feedback, CPD has identified particular areas in
which additional training is desired and needed. The TOC will work in
2017 to ensure that the in-service curriculum addresses those needs.
Training topics identified as top priorities include: (1) use of force and
force mitigation training, including in-service training to address the
revised use of force policies; (2) legislative and case law developments
that affect policing; (3) firearms and crisis intervention training; (4)
interacting with people exhibiting mental instability; (5) law enforcement
medical and rescue training (LEMART); and (6) tactics training.

CPD’s Leadership at the Training Academy Will Work to Improve the Quality of
Instruction.
1.

For the first time in several years, CPD has filled the executive officer
position within the Education and Training Division with a commander,
rather than a captain, reflecting the elevation of the training function
within the Department. Under the overall supervision of the TOC,
leadership of the Education and Training Division will oversee training
reforms and improve the quality of instruction at the Academy at every
level of training from recruit to in-service training. This will include
CPD’s efforts to hire and train 970 new officers, and fill existing
vacancies, over the next two years.

3

 C.

2.

CPD’s Training Division will obtain feedback on a regular basis from a
wide range of sources – including field supervisors, legal advisors, and
external agencies – on observed weaknesses, deficiencies, and potential
areas of improvement in officer conduct that can be addressed through the
development of new or revised training.

3.

A newly formed Recruit Curriculum Working Group, acting under the
oversight of the TOC, will complete a comprehensive review and revision
of the recruit training curriculum to ensure that its substance and
presentation are consistent with the goals of recruit training and implement
new state-mandated requirements. CPD will roll out and implement the
recommendations of the Working Group during 2017.

4.

CPD’s Training Division will improve instructor recruitment and
instructor evaluation as follows:
a.

CPD’s Training Division will broaden its search for qualified
instructors, both inside and outside CPD. The recruitment and
selection process will place a premium not only on interest in the
training function and teaching experience, but also on
communication and presentation skills.

b.

CPD’s Training Division will install a rigorous instructor
evaluation system. Instructors will be evaluated based on
communication and presentation skills, in addition to their mastery
of the material.

c.

CPD’s Training Division will identify instructors who have
demonstrated extraordinary skill in training and knowledge in their
fields of instruction, and who have received consistently
outstanding performance reviews. CPD’s Training Division will
develop effective strategies to retain those instructors at the
Academy.

CPD Is Re-Examining and Reforming Its Recruit and In-Service Training
Curriculum to Ensure Consistency with CPD Policies.
1.

CPD’s Training Division will hire more staff for the Academy’s
Instructional Design and Quality Control (IDQC) section to provide
additional support for curriculum design and review.

2.

CPD’s Training Division will increase the use of instructional methods
that incorporate adult learning principles, including the use of more
scenario-based training, in all of its training.

3.

CPD’s Training Division and the Bureau of Patrol will work together to
develop a plan to ensure that recruit and veteran officers receive sufficient

4

 training and direction in sound tactics to avoid unnecessarily increasing
the risk of deadly encounters.

D.

E.

4.

The TOC will ensure that all curricula and lesson plans used throughout
CPD – including in specialized units – will be provided to IDQC on a
regular and continuing basis to ensure consistency with other CPD training
materials, incorporate best practices, and promote continued improvement.

5.

The TOC will ensure that the Training Division modifies the recruit
curriculum to specifically address the Employee Assistance Program
(EAP) during recruit training, emphasizing the stressful nature of being a
police officer and providing information regarding available resources and
their benefit to officers and the Department.

CPD Will Continue and Expand Live Scenario-Based Training on the Use of
Force to Provide Officers with Additional Skills and Tools.
1.

In 2016, CPD selected and trained 16 instructors to teach the 16-hour in
service course focused on force mitigation principles, skills, and tactics,
and the special challenges presented by individuals with mental health
illness (see page 2). These instructors, and additional instructors who
have been trained since then, have been teaching the 16-hour in-service
course on one shift since September 2016. In 2017, CPD will identify and
train additional instructors to teach the 16-hour course on a second shift,
which will double CPD’s training capacity for this in-service course. This
training will continue to provide officers, supervisors and exempt staff
with necessary tools to de-escalate conflicts safely, recognize signs of
mental illness, trauma and crisis situations, and respond quickly and
appropriately when force is necessary.

2.

CPD’s Training Division will also develop an intensive training program
on the Department’s updated use of force policies (see Section III below),
including scenario-based training. CPD will roll out use of force training
to as many officers as practicable in 2017.

CPD Will Improve its Field Training Officer (FTO) Program to Reinforce
Policies and Practices Learned at the Training Academy.
1.

CPD will continue its FTO recruitment campaign to ensure that CPD has
the highest quality FTOs and all recruits have appropriate guidance and
training when they leave the Academy.

2.

As with the recruit curriculum, CPD has created a FTO Working Group
whose goal is to reengineer the FTO curriculum to focus on topics most
relevant to FTOs, including leadership, mentoring, performance
evaluation, ethics, and diversity. CPD plans to roll out the
recommendations of the Working Group during 2017.

5

 F.

3.

CPD will also focus on providing refresher training to FTOs who were
trained in FTO classes before 2017.

4.

CPD will upgrade the system for evaluating FTOs and the probationary
police officers (PPOs) through improved documentation and enhanced
monitoring and assessment of both FTO and PPO performance.

5.

CPD will upgrade the supervisory structure for the FTO program, which
will include designating supervisors in each district who are responsible
for the operation of the FTO program in that district, and coordinating
more closely with the Academy on the overall operation of the FTO
program.

6.

CPD will develop a plan to enhance the supervision of PPOs following the
completion of their FTO tours.

7.

CPD will modify the chain of command for FTOs, so that FTOs report
both to the Bureau of Patrol (as to their policing functions) as well as to
the Training Division (with respect to their supervisory and training
functions). This will allow FTOs to evaluate PPOs and provide the
Training Division with feedback regarding additional training needs
before PPOs complete their probationary period.

CPD Will Expand and Improve In-Service Training to Provide Ongoing
Instruction on the Most Relevant Policing Topics.
1.

The Training Oversight Committee (TOC) will be responsible for
establishing, revising, and overseeing the in-service training curriculum.

2.

CPD will create a consistent process for creating, vetting, and reviewing
in-service training courses to ensure their relevance and quality.

3.

In-service training will address topics identified by officers as necessary or
helpful to their job performance and satisfaction, including:
a.

De-escalation,

b.

Mental health,

c.

Use of force,

d.

Search and seizure,

e.

Procedural Justice (Bias-Free Policing, with modules PJ1, PJ2, and
PJ3),

f.

Active shooter,

g.

LEMART,

h.

Law Enforcement Protective Measures,

6

 4.

G.

H.

i.

Crisis Intervention Training (CIT), and

j.

Weapons certification.

The lesson plans and classroom presentation for in-service training
courses will, as a general matter, be reviewed and evaluated by a
combination of Academy personnel, other CPD personnel, and a panel of
outside experts.

CPD Will Continue and Expand Procedural Justice Training to Address Implicit
Bias and Facilitate Safe and Lawful Policing.
1.

CPD will continue to implement and provide PJ1 and PJ2 (Procedural
Justice training) to all officers, supervisors, and command staff.

2.

With the assistance of subject matter experts, CPD will work to develop a
curriculum (PJ3) in 2017 to further address conscious and unconscious
bias. CPD anticipates pilot testing the PJ3 curriculum with outside experts
and providing PJ3 training to officers in 2018.

3.

Procedural Justice training is and will continue to be focused on:
a.

Methods and strategies for more effective policing that rely upon
nondiscriminatory factors, including problem-oriented policing
strategies;

b.

Identifying key decision points where prohibited discrimination
can occur at both the incident and strategic-planning levels;

c.

Constitutional and other legal requirements related to equal
protection and unlawful discrimination;

d.

The protection of civil rights as a central part of the police mission
and as essential to effective policing;

e.

The existence and impact of stereotyping and implicit or
subconscious bias on officer decision-making and public
interactions; and

f.

Cultural competency, cultural awareness, and sensitivity, including
the impact of historical trauma on current police-community
interactions.

CPD Will Provide Refresher Investigatory Stop Report (ISR) Training.
1.

In 2016, CPD implemented measures to comply with a new Illinois state
law regulating the documentation of investigatory stops and protective pat
downs. CPD also began implementing a settlement agreement with the

7

 ACLU in which CPD agreed to track investigatory stops and protective
pat downs, by focusing on four areas:

2.

I.

a.

CPD revised its written policy regarding investigatory stops and
protective pat downs (Special Order S04-13-09) to clarify
constitutional limitations, improve recordkeeping, and more
specifically delineate supervisory and internal auditing
responsibilities. To implement the revised policy, CPD created the
Investigatory Stop Report (ISR) form and, in response to officer
feedback regarding the form, shortened and simplified it by
combining three narratives into one.

b.

CPD updated and expanded its training on investigatory stops and
protective pat downs and provided the new training, which totals
eight hours, to nearly all of its sworn officers. CPD also provided
tailored training to its executive officers regarding their duty under
Special Order S04-13-09 to conduct monthly internal audits and to
report their findings to their commanding officers.

c.

CPD implemented internal review mechanisms to assess whether
its practices regarding investigatory stops and protective pat downs
comply with applicable law. Supervising officers are specifically
tasked with ensuring that reasonable articulable suspicion for
investigatory stops and protective pat downs is set forth on ISRs.
Supervisors are reviewed, in turn, by executive officers, who
conduct monthly internal audits of ISRs.

d.

A new unit within CPD, the Integrity Section, reviews ISRs
identified as deficient by supervisors and the monthly audits
prepared by executive officers, as well as a random sample of all
ISRs, to ensure compliance with applicable laws and CPD policy.

CPD will carefully consider the recommendations of former Magistrate
Judge Arlander Keys, who was selected to oversee the settlement
agreement with the ACLU, upon receipt of his first final report.

CPD Will Continue to Provide Crisis Intervention Team (CIT) Training and
Expand Resources Dedicated to CIT to Better Serve Individuals with Mental
Health Conditions or in Mental Health Crisis.
1.

In 2016, CPD continued to provide 40-hour in service CIT training to
CPD officers, increasing the total number of CIT-trained officers to 2,200.
CPD also partnered with the Officer of Emergency Management and
Communication (OEMC) and the National Alliance on Mental Illness
(NAMI) Chicago to provide mental health awareness and de-escalation
training for all 911 call takers and dispatchers, as well as many 311 call
takers.

8

 2.

J.

K.

In 2017, CPD will continue to expand the number of CIT-trained patrol
officers and will devote additional staff and resources to the CIT program,
including the assignment of a lieutenant and additional officers to the
program.

CPD Will Begin to Address Deficiencies in its Training Facilities to Align with
National Best Practices.
1.

In December, 2016, the City committed to building a new training
academy. In 2017, CPD will assess its training needs in light of national
best practices, and develop and design facilities to meet those needs. The
City will also upgrade the facilities of the current Training Academy in the
first quarter of 2017, including the firing range.

2.

To meet CPD’s anticipated training needs for 2017, CPD has identified
and will use auxiliary sites for in-service training, including but not
limited to scenario-based training.

CPD Will Seek Officer Involvement in Training.
CPD will seek and consider input from officers and supervisors when
revising or implementing new policies and developing training, including
through the use of needs assessments, focus groups, and surveys. For
example, in connection with the development of CPD’s use of force
policies, the draft policies were put out for comment and we received well
over 100 comments from CPD personnel. Subsequently, scores of officers
and supervisors participated in a series of focus groups designed to elicit
further reactions and responses to the draft policies.

III.

CPD WILL WORK TO PROVIDE OFFICERS WITH THE SUPERVISION
REQUIRED TO PERFORM THEIR DUTIES EFFECTIVELY.
A.

To assess CPD’s manpower needs and deployment allocation, the City engaged
Dr. Alexander Weiss in late 2016 to develop a workload-based police staffing
analysis. Dr. Weiss will work with former Boston police superintendent Paul
Evans in 2017 to develop and conduct the study. CPD will review their analysis
and may re-evaluate total officer needs as well as the deployment of officers and
supervisors across and within districts. The immediate goal of this study is to
examine where CPD should deploy the several hundred new officers CPD plans
to hire over the next two years.

B.

CPD Is Working to Limit the Span of Control, or Number of Officers that
Sergeants Will Supervise to Improve Supervision.
In 2017, CPD will be adding 37 sergeants, 50 lieutenants, 200 new detectives and
92 FTOs, in addition to filling existing vacancies. In addition, CPD will convert
44 sworn sergeant positions to positions that will be filled by civilians. CPD’s
2017 hiring plan places an emphasis on providing effective supervision for new
9

 officers, and decreasing the span of control – the ratio of patrol officers to
sergeants – allowing for more hands-on supervision of officers and daily guidance
and feedback.
C.

CPD Will Improve Sergeant Training to Strengthen CPD Leadership and
Management.
Under the oversight of the TOC, CPD will review its pre-service promotional
curriculum for sergeants, with a focus on the main challenges of supervising and
managing police personnel, and with an increased focus on leadership,
management, supervision, human relations, ethics, diversity, community policing,
performance evaluations and conducting and supervising complaint register (CR)
investigations.

D.

CPD Will Ensure that the Watch Operations Lieutenants (WOL)
Appropriate Supervisory Oversight Throughout the Department.

Provide

With increased staffing levels, CPD is committed to ensuring that appropriate
supervisory staff are deployed to the Bureau of Patrol, to ensure that oversight,
supervision and leadership are present on a consistent basis, both inside CPD
stations and in the field. To that end, CPD will ensure that a Watch Operations
Lieutenant is empowered in each police district to rigorously monitor district
activities and to assist commanders in providing a customized approach to the
needs of the individual districts.
E.

CPD Will Increase Transparency in CPD’s Merit Promotions Process to Develop
Qualified and Valued Leaders.
1.

CPD will increase internal transparency of the process for merit
promotions, providing clear communication regarding who can
recommend an individual for promotion, who can be recommended, and
what criteria, process, and decision makers are using to determine who
receives merit promotions.

2.

CPD will revise the training materials for those CPD members making
merit promotion nominations to emphasize that their recommendations
must be based on personal knowledge and/or discussions with the
nominee’s supervisors.

3.

CPD will develop and document a Standard Operating Procedure for the
merit selection process to ensure CPD-HR is accountable for guaranteeing
that all aspects of the CPD Hiring Plan are met.

4.

CPD will ensure that all command staff involved in the merit promotion
process are fully aware of their obligations under the Hiring Plan by
requiring re-training on a periodic basis.

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 5.

IV.

CPD has restored and will continue the practice of publishing a list of
officers promoted through the merit process and the individuals who
nominated them.

CPD WILL CONTINUE TO ADDRESS USE OF FORCE POLICIES AND
PROVIDE OFFICERS WITH THE SKILLS AND TOOLS NECESSARY TO
ADDRESS CONFLICT SITUATIONS.

The sanctity of all human life – both the men and women of CPD and the communities
they serve – is CPD’s highest priority. Recognizing the critical importance of that principle to
constitutional and effective policing and public safety, CPD strives to ensure its policies relating
to uses of force are up to date and incorporate constitutional standards and best practices.
In 2016, CPD completed a comprehensive review and revision of its use of force policies
in an effort to incorporate best practices, provide clear direction for officers, and prioritize the
sanctity of human life. In the second-half of 2016, CPD released draft use of force policies for
public comment to gather and consider community and CPD officer input, and worked with the
community and other constituencies to strengthen its use of force policies.
In 2017, CPD continues its work on issues relating to officer use of force. CPD will
finalize its revised use of force polices, develop and provide necessary training on those policies,
and will put in place the tools for robust data collection and analysis to allow CPD to identify
areas of strength and weakness after the implementation of those policies. Among other things,
the data collection and analysis will help CPD focus on areas and issues that need to be further
addressed.
A.

CPD Has Revised and Will Continue Revising and Updating Use of Force
Policies to Provide Clearer Guidance for Conflict Situations.
1.

CPD will put its revised use of force policies into effect. Core principles of
these policies include:
a.

Emphasis on the Sanctity of Life – In all aspects of the use of
force, CPD members are to act with the foremost regard for human
life and safety of all persons involved.

b.

Ethical Behavior – Officers are required to engage the public with
professionalism and to respect the dignity of every person in
carrying out their law enforcement duties. They must ensure that
gender, race, ethnicity, or any other protected characteristics do not
influence any decision on the use of force, including the amount
and type of force used, or whether force is used at all.

c.

Objectively Reasonable and Proportional Use of Force – While the
legal standard remains that an officer’s use of force must be
objectively reasonable, necessary, and proportional to the threat
faced by the officer, CPD members will be expected to use only
the amount of force necessary based on the totality of the
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 circumstances and only resort to physical force when no
reasonably effective alternative appears to exist.

B.

d.

De-escalation – CPD members are to deescalate situations as soon
as practicable and resort to force only after all other reasonable
alternatives have been exhausted or would clearly be ineffective
under the circumstances.

e.

Force Mitigation – CPD members are to use the principles of force
mitigation to de-escalate potential use of force incidents wherever
and whenever possible, including through the use of time as a
tactic, continual communication, tactical positioning, and
requesting assistance from other officers, mental health personnel,
or specialized units as necessary and appropriate.

f.

Deadly Force – Deadly force is only authorized to prevent an
immediate threat of death or great bodily harm posed to officers or
another person.

2.

While these overarching principles lie at the core of CPD’s use of force
policies, CPD will continue to ensure its policies address the rules
governing the use of specific authorized force tools and techniques,
including the technologies and weapons available to CPD officers.

3.

CPD will develop a training module to address proper foot pursuit tactics.
The training module will make clear that foot pursuits are dangerous, and
that foot pursuits must balance the objective of apprehending the suspect
with the risk of potential injury to the officer, the public, and the suspect.

4.

CPD will review and revise its policies relating to the use of OC spray,
canines, and Tasers to ensure consistency with best practices and to ensure
that the underlying concepts identified above are incorporated throughout
the policies and related training. In addition, CPD’s use of force policies
will specifically address the use of different types of force against
vulnerable populations, such as young children, the elderly, and the
disabled.

5.

CPD will review and revise its policies to prohibit the use of retaliatory
force, force used as punishment, and force used in response to the exercise
of protected First Amendment activities, which include filming the
activities of officers and the exercise of free speech rights.

CPD Will Improve its Policies on Use of Force Reporting, Assessment, Review
and Record-Keeping.
1.

CPD will revise its Tactical Response Report form (used in use of force
reporting) to require officers to complete a narrative that describes with

12

 particularity the force used and the circumstances necessitating the level of
force, including the reason for the initial stop or other enforcement action.

C.

2.

CPD will develop a system for supervisory review of use of force that
requires a supervisor to conduct a complete review of significant uses of
force, including gathering and considering evidence necessary to
understand the circumstances of the force incident and determine its
consistency with law and policy. The gathering of evidence includes
taking statements from individuals against whom force is used and from
other witnesses.

3.

CPD will ensure its policies provide clear guidance on the obligation of
officers to report uses of force, assign responsibility for reviewing uses of
force, and provide specific guidance on how to conduct such reviews.
a.

Initial Reporting and Response: CPD will establish requirements
that set forth the duty to report the use of specific and defined
types of force and a supervisor’s duty to respond and direct
activities at the scene of certain uses of force. These requirements
will include that officers report certain uses of force to direct
supervisors immediately or as soon as practical.

b.

Supervisory Assessment: CPD will establish requirements that set
forth who is responsible for the assessment of specific uses of
force and how that assessment is to be conducted. Assessments of
uses of force will evaluate whether the use of force was justified
and consistent with CPD policy, and to identify any concerns
regarding training, tactics, equipment, or supervision.

c.

Departmental Review: CPD will establish requirements that set
forth how use of force incidents are reviewed above the level of the
first-line supervisor. The goals of such reviews include providing
remedial guidance to individual officer(s) and determining whether
broader revisions or modifications to guidance or training should
be developed.

CPD Will Create a Force Review Unit to Analyze Patterns and Trends in CPD’s
Uses of Force.
1.

CPD will create an internal Force Review Unit, which will review uses of
force, identify patterns and trends, and recommend modifications in
training and tactics.

2.

The Force Review Unit will assess incidents involving uses of force and
will be authorized to make recommendations to the Superintendent on
systemic issues that may affect the use of force. These recommendations
may address the need for tactical improvements, new or revised training,
new or improved equipment, the structure or function of CPD command
13

 and control, and any other matters that could improve future performance
of CPD officers or CPD as a whole.

D.

3.

The Superintendent, acting through the TOC, will evaluate the conclusions
of the Force Review Unit, along with the results of relevant Civilian
Office of Police Accountability (COPA) or other investigations, when
evaluating the need for additional training, tactical improvements or
additional resources for CPD officers.

4.

Members of the Force Review Unit will receive specialized training,
which will include: training on their role and responsibilities, legal and
best practices updates in the area of use of force, relevant updates to CPD
policies on use of force, and CPD training curricula related to the use of
force.

5.

The Force Review Unit will develop procedures to govern its operations.

CPD Will Improve Data Collection and Analysis Regarding its Use of Force to
Produce Accurate and Reliable Data.
CPD is committed to improving its capacity to track and analyze uses of force by
CPD personnel. By the end of 2017, CPD will assess its existing capabilities.
CPD will engage outside consultants, as necessary, to assist in this effort, and
establish a working group or task force to make recommendations to inform the
plan. In developing that plan and assessing its needs, CPD will ensure that any
new systems will have the capacity to reliably and accurately maintain and track
data derived from use of force-related documents.

V.

CPD WILL CONTINUE TO WORK TO IMPROVE ITS POLICE
ACCOUNTABILITY SYSTEMS TO IDENTIFY POLICE MISCONDUCT AND
HOLD OFFICERS ACCOUNTABLE IN A FAIR AND CONSISTENT MANNER.

CPD officers are dedicated public servants who strive to do their best in challenging
circumstances. However, CPD recognizes that holding officers accountable when wrongdoing
occurs is essential to ensuring legitimacy, community confidence, and public trust. CPD is
committed to including corrective training, counseling or other remedial measures as
intervention options for officers, even in cases where complaints are not filed. Further, the
Department acknowledges that officer mental health and support are crucial to CPD and the
community.
In 2017, CPD will continue its work on accountability issues, including working in
cooperation and collaboration with COPA. CPD will work to establish policies and procedures
to further ensure that all allegations of officer misconduct are fully and fairly investigated and
that all officers who commit misconduct are held accountable pursuant to a disciplinary system
that is fair and consistent. As a part of this Framework, CPD intends to implement the following
measures:

14

 A.

CPD Will Improve Annual and Periodic Public Reporting to Enhance
Transparency.
CPD will ensure that its year-end Annual Report for 2016 is issued and made
widely available to the residents of Chicago. The report will include various
statistical crime and other data to inform the community regarding CPD activity.

B.

C.

CPD Will Roll Out Body-Worn Cameras to the Remaining Districts to Improve
Transparency and Accountability.
1.

In 2016, CPD equipped all officers in seven districts, covering one-third of
the City, with body-worn cameras. By the end of 2017, all patrol officers
in all police districts in Chicago will have these cameras -- one full year
earlier than originally planned. Officers in the fifteen police districts
where body worn cameras will be rolled out in 2017 will be trained on the
use of body worn cameras prior to use. The use of body-worn cameras by
officers will help to support officers working on the street, improve
transparency, and rebuild trust within communities.

2.

CPD intends to release its revised policy for body-worn cameras in 2017.

CPD Will Work to Develop a System to Improve Communications Regarding
Officer Support to Provide Sufficient Resources to Meet Officers’ Wellness
Needs.
1.

CPD’s Bureau of Organizational Development will continue the
Department’s work with the University of Chicago Crime Lab and other
experts in the field to identify officer risk factors and a process to identify
officers who may need additional training or support.

2.

CPD’s Bureau of Organizational Development will review support
services available to officers, including services for officer-involved
domestic violence, services provided after officer-involved shooting
incidents, and other support available following events that may cause
officer trauma. At the completion of that review, the CPD, with input
from officers and experts in the mental health field, will develop a plan for
enhancing officer support, including a resource proposal to provide
adequate support. The plan will, at a minimum, focus on the following
issues:
a.

Continued provision of and enhancements to the Employee
Assistance Program (EAP);

b.

Revisions, as necessary, to the list of mental and physical health
service providers available as a part of the EAP; and

c.

A coordinated communications strategy regarding EAP that will:

15

 D.

i.

Proactively communicate to officers the services that are
available and how using those services can benefit the
officer and the Department;

ii.

Provide information regarding support services available to
officers and their families, the benefit of such services, and
how to access services;

iii.

Integrate officer wellness principles into training;

iv.

Minimize misconceptions regarding the use of EAP, such
as the misperception that the use of EAP will adversely
affect their careers; and

v.

Publicize EAP and encourage its use.

CPD Will Improve the Process for Reporting and Investigating Misconduct to
Ensure that the Process is Consistent, Transparent, Reliable and Accessible to
Both Officers and the Community.
1.

In 2017, CPD will publicly post information regarding the complaint
process – including how to make a complaint regarding officer
misconduct, relevant contact information, telephone numbers and email
addresses – on CPD’s website. Because COPA has its own strong
institutional interest in these issues, CPD will work closely with COPA to
facilitate the reporting of officer misconduct.

2.

CPD will internally disseminate information regarding the implementation
of a hotline for CPD members to anonymously report officer misconduct.
The hotline will be housed within the Office of Inspector General to
ensure officer anonymity.

3.

Through improved communications and training, CPD will reinforce its
policies regarding officer-involved shootings to maintain the integrity of
the investigative process. The following policy provisions will be reenforced:
a.

Involved and witness officers will be precluded from speaking
with one another, or with civilian witnesses, on the day of the
shooting or about the incident until after they have been
interviewed by COPA investigators, except to the extent necessary
to ensure public safety.

b.

Where possible, involved officers, witness officers, and civilian
witnesses will be transported to the station separately and their
conversations will be monitored to avoid inappropriate discussion
about the shooting incident prior to being interviewed.

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 4.

E.

F.

Additionally, CPD will make efforts to improve:
a.

Its electronic centralized tracking system for all complaints of
misconduct, which will capture accurate and reliable information
regarding each complaint, from the filing of the allegation to final
disposition, including a description of the allegation, the final
approved disposition, and any discipline imposed. Specifically,
CPD will initiate a competitive procurement process to obtain a
new case management system in the first quarter of 2017.

b.

The capability to specifically track misconduct complaints related
to violations of the duty of candor, discriminatory policing, and
allegations of excessive force.

The Bureau of Internal Affairs (BIA) Will Improve its Complaint Investigations
Policies to Produce More Timely and Thorough Investigations.
1.

BIA will investigate allegations of police misconduct even if the
complaint is over five years old, the complainant seeks to withdraw the
complaint, or is unavailable. When there is objective verifiable evidence
that supports the allegation, BIA will invoke the use of the affidavit
override procedure.

2.

BIA will revise its procedures to ensure that evidence such as in-car
camera or body camera video material will be preserved immediately.
Such preservation should not be deferred until after the complainant is
contacted or an affidavit is obtained.

3.

BIA will develop and administer training to BIA investigators on
conducting administrative investigations concurrently with any criminal
investigation, and best practices in conducting parallel investigations.

4.

CPD will take all necessary steps to complete the administrative
investigation as promptly as possible. CPD will include data on the
administrative investigations conducted by BIA in its Annual Report,
including the number of complaints investigated by BIA and the number
of investigations which, due to the nature or complexity of the
investigation, required more than 90 days to complete.

5.

CPD has purchased digital audio recorders for use in BIA interviews.
CPD has developed an SOP regarding the use of these recorders for BIA
interviews. CPD trained BIA investigators on the use of the digital
recorders in early 2017. BIA investigators have been using the digital
recorders and will continue to use them for all interviews they conduct,
except if a complainant or other civilian witness objects to being digitally
recorded.

CPD Will Work to Ensure that Discipline is Consistent and Transparent.
17

 G.

1.

CPD will continue to develop protocols to ensure that misconduct
complaints are adjudicated in a fair, timely and consistent manner. CPD
finalized and issued a first-ever Complaint Register (CR) Matrix to
provide transparency and consistency to the Department’s decisionmaking regarding officer discipline. The new Guidelines that accompany
the Matrix specifically reflect that CPD has zero tolerance not only for
false statements made by officers, but also for failure to report
misconduct. CPD will begin implementing the CR Matrix for discipline in
early 2017.

2.

CPD will examine its disciplinary recommendation and review process
and will consider whether to replace the command channel review (CCR)
process with an alternative system. The core of this alternative system
would be a disciplinary conference, entrusted to a single individual, who
would make disciplinary recommendations directly to the Superintendent.

CPD Will Work to Improve the Training, Workload and Personnel Management
of BIA.
In 2017, CPD will focus on several key areas regarding BIA, including:

H.

a.

Enhanced training for BIA personnel, including on updates to its
Standard Operating Procedures. For example, in January of 2017,
ten BIA Sergeants attended Detective Training, and BIA
anticipates sending an additional group of sergeants to the next
Detective training course. BIA is evaluating available Detective
training and will complete a comprehensive analysis of training
needs in April 2017.

b.

Issues of investigator caseload and timeliness of investigations.
BIA has conducted a staffing analysis and seeks to add one
additional lieutenant and ten additional sergeants.

CPD Will Continue its Community Engagement to Increase its Data/Information
Collection and Public Information Sharing.
1.

In 2016, Superintendent Johnson and other members of the command staff
frequently engaged in outreach efforts by meeting with community groups
and other stakeholders within the City. The Superintendent and the
command staff intend to continue those efforts and discussions throughout
2017.

2.

In 2016, CPD released its use of force policies to its members and the
public for comment through an online portal. Through this process, CPD
obtained valuable feedback, and anticipates that it will continue to utilize
this procedure in 2017 in connection with major policy changes.

18

 CONCLUSION
CPD understands that the process of reform is complex and requires continued and
sustained effort and strong leadership. Reform does not occur overnight and requires clear goals
and objectives. CPD is committed to working collaboratively with members of the Chicago
community and with urgency to ensure that it is able to achieve sustainable reform. CPD
anticipates that the reform measures outlined in this Training and Reform Framework will
enhance public safety and make the work of police officers fairer, safer, and more effective.

18016088.20

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