Emergency Communications has dramatically improved 911 staffing and call wait times; further efforts could help avoid setbacks

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Summary

Portland's Bureau of Emergency Communications hires and trains the employees who answer and dispatch 911 calls. Like 911 centers across the country, many employees left their jobs at the Bureau during and following the COVID-19 pandemic. At the same time, call volume increased, resulting in long waits before calls were answered.

To address the Bureau's staffing crisis and help reduce wait times, Emergency Communications' Training Department increased its recruitment, hiring, and training of dispatcher trainees. Their efforts contributed to dramatically improved staffing at the Bureau and shorter 911 wait times. 

The successful recruitment, hiring, training, and retention of new dispatchers is critical to ensuring that calls to 911 are answered promptly and dispatched effectively—and avoiding setbacks. Our audit examined whether Emergency Communications' recruitment, hiring, and training practices helped them identify candidates that succeed in training and are employed long-term.

We found that 911 call taking and dispatching is complex, demanding work that can be difficult to learn. Almost half of Emergency Communications' dispatcher trainees resigned or were terminated during training. Trainee attrition is a lost investment in the time and money spent to recruit, hire, and train new hires. It can be hard on morale, too. We also found that Emergency Communications' training program is long and that few trainees completed it within the Bureau's timeline targets. In addition, we found a disconnect between the Training Department's efforts to improve hiring and training and perceptions of their work among some staff.

We make recommendations to help Emergency Communications improve training timelines, increase trainee retention, and reduce staff resistance to changes in the training program.

Background

Emergency Communications' staff answer 911 calls and dispatch emergency responders 

When Portlanders dial 911 in an emergency, they want the call to be answered promptly by someone who is knowledgeable and courteous and who quickly connects them with the help they need. 

Portland's Bureau of Emergency Communications is responsible for recruiting, hiring, and training the employees who field these calls. Known as Senior Emergency Communications Dispatchers or Senior Dispatchers once they are fully trained, these employees:

• Answer 911 and non-emergency calls from throughout Multnomah County
• Gather information about the emergency and its location 
• Dispatch responders from the appropriate partner agency (fire, police, medical, alternate responder) 
• Share relevant information about the emergency with responders 
• Monitor the response, provide updates if the emergency evolves, and coordinate additional assistance as needed

Figure 1. Emergency Communications employees answer 911 calls and dispatch assistance

View full size image of Flow diagram shows four steps in the 911 call taking and dispatching process, from when a person contacts 911 until first responders arrive at the location.

911 staffing shortages put public safety at risk

The national standard is for 90% of all 911 calls to be answered in 15 seconds. To meet that standard, 911 centers should have the right number of trained call takers and dispatchers available. However, in communities across the United States, 911 centers face considerable difficulties retaining staff. These challenges have intensified since the pandemic, when an alarming number of workers left the emergency dispatch profession. 

Nationally, stress is reported as the top reason for turnover at 911 centers. Answering 911 calls and dispatching assistance is challenging and can be highly stressful. 911 centers handle a high volume of calls and the stakes can be high, sometimes requiring quick decisions to help callers in life-threatening situations. Because 911 call centers operate 24 hours a day, 7 days a week, employees must work shifts on evenings, weekends, and holidays. Shifts are usually long, and can be even longer when staffing is low and employees are asked (or required) to work overtime.

911 staffing shortages put public safety at risk. When staffing is low, it can take longer to answer calls, especially when call volumes are high. Staffing shortages also mean that more calls are answered by newer staff, who have less experience. Understaffed 911 centers may also overburden employees by requiring them to work longer hours and continually train new hires. Burnout can contribute to a toxic workplace culture, which can fuel a destructive cycle of turnover, make it difficult to recruit new dispatchers, and impact the quality of emergency services the public receives.

Like at 911 centers across the country, many employees left their jobs at Portland's Bureau of Emergency Communications during and following the COVID-19 pandemic. At the same time, call volume increased, spurring longer waits before calls were answered. For example, the Bureau reported that it had just 63 fully trained and certified Senior Dispatchers and 33 vacancies in July 2022. That month, the average wait time was 77 seconds, and only 29% of calls were answered within the 15-second standard.

Emergency Communications focused on hiring and training new dispatchers

Emergency Communications' Training Department is responsible for recruiting, hiring, and training dispatcher trainees, with outreach and hiring support from the Bureau of Human Resources. The Training Department said they have been "laser-focused" on adding new staff in recent years: they conducted more frequent recruitments, over-hired to help prevent future vacancy crises, and held up to four training academies per year. 

To motivate experienced staff to help train the influx of new hires, Emergency Communications increased pay premiums for coaching. The Bureau also temporarily increased overtime pay to promote retention and encourage employees to work additional hours to meet the demand for training and services.

These efforts paid off. After reporting record-low staffing in February 2023, with 40 vacancies, Emergency Communications was down to just 13 vacancies in May 2025. Call volumes were also down, and that month, the Bureau reported that the average wait time had dropped to 23 seconds. By January 2026, the Bureau had 91 Senior Dispatchers and only six vacancies, and reported an average wait time of 18 seconds.

However, as of April 2026, Emergency Communications still did not meet the national standard of 90% of 911 calls answered in 15 seconds.

Figure 2. Emergency Communications reported that the number of vacant positions and average call wait times have decreased since the COVID-19 pandemic

View full size image of Bar chart shows the number of vacant positions and average call wait times in November 2019, July 2022, May 2025, and January 2026, with peaks in July 2022.

The successful recruitment, hiring, training, and retention of new dispatchers is critical to maintaining staffing levels and call wait times—and avoiding setbacks. Our audit therefore examined whether Emergency Communications' recruitment, hiring, and training practices helped them identify candidates that succeed in training and are employed long-term.

Hiring and training new dispatchers are lengthy processes

Hiring and training new dispatchers are lengthy processes, especially when done in bulk. Accordingly, it took time for Emergency Communications to dig itself out of its staffing hole.

It took over six months for the Bureau to hire new dispatcher trainees 

To work as an Emergency Communications' dispatcher trainee, candidates must be at least 18 years old, have a high school diploma or GED, and be able to type 40 words per minute with 90% accuracy. The position is entry-level. No emergency communications experience is required, since the Bureau provides comprehensive training. 

To be successful, dispatchers should possess strong communication, multitasking, memorization, reading comprehension, and problem-solving skills. They should also be able to think quickly, remain calm and composed in high-stress situations, type without looking at their hands ("touch type"), and use required computer, radio, mapping, and phone systems. 

The dispatcher trainee hiring process involves numerous steps:

• Applicants apply online
• City reviews applications for minimum qualifications
• Qualified candidates take a typing test (online)
• City compiles results
• Candidates who pass typing test take a skills test called CritiCall (online)
• City places candidates who pass CritiCall test on Eligible List
• Candidates on Eligible List participate in first interview
• Candidates who pass first interview participate in second interview
• Candidates who pass second interview undergo background check
• Candidates who pass background check undergo psychological assessment
• Candidates who pass psychological assessment undergo pre-employment medical testing

Figure 3. Hiring dispatcher trainees involves numerous steps

View full size image of Inverted pyramid listing the steps in the dispatcher trainee hiring process, which is described in the text above.

Data provided by the Training Department shows that between July 2022 and May 2025, it took more than six months, on average, for the Bureau to hire dispatcher trainees. Some of the lengthy timeline is justified. Given the sensitive nature of the work, Emergency Communications must thoroughly vet potential hires, and some of the screening is required by the state. 

The volume of applicants also contributed to the long hiring timelines. The Bureau received over 2,300 applications for training academies that started between July 2022 and May 2025.

The Training Department monitors hiring data and reported that it has taken steps to speed up the process where possible. In addition, the Department includes information about the proposed start date and the individual hiring steps in its job postings, so candidates know what to expect. The Training Department also said it communicates with candidates to help keep them engaged throughout the process.

Dispatcher trainees participate in an extensive training program 

Once hired, dispatcher trainees participate in Emergency Communications' extensive, full-time training program. The Bureau pays trainees a salary, which increases when they complete their training. 

Because most trainees have no prior 911 experience, they start with a twelve-week Basic Academy that introduces them to the work. The Basic Academy involves classroom learning with tests, as well as simulation exercises, in which trainees practice taking calls and dispatching responders. Trainees may also observe Senior Dispatchers taking live calls. 

New hires attend Basic Academy together as a cohort. During or shortly following Basic Academy, each cohort attends a three-week state-mandated telecommunicator course in Salem, Oregon.

After Basic Academy, the Training Department assigns every trainee to a coach for on-the-job training. Trainees and coaches work the same shift and start off sitting side-by-side. Coaches provide instruction and guidance and complete daily reports on their trainee's progress. As trainees gain skills, they perform more tasks independently and sit farther away from their coach. At various points during their on-the-job training, trainees rotate to different coaches to experience shifts around the clock.

On-the-job training is organized into three disciplines: call taking, police dispatch, and resource dispatch (medical, fire, and alternative response). Trainees must achieve certification in all three disciplines to complete their training and advance to the Senior Dispatcher classification.

Our review of Training Department data found that, on average, trainees took over 26 months to certify in all three disciplines.

The Training Department reported that trainees who successfully certify in all areas tend to stay at the Bureau. For example, data provided by the Training Department shows that of the 39 trainees who certified in all disciplines during the period of our review, only one has separated. Additionally, Emergency Communications reported that its overall staff attrition rate for Fiscal Year 2024-25 was 17.3%. That rate is on the low side relative to national 911 attrition trends, which are estimated to range from 15% to 30%. Moreover, three employees who were included in the Bureau's calculation had been promoted.

Results

We found that911 call taking and dispatching is complex, demanding work that can be difficult to learn. Almost half of Emergency Communications' dispatcher trainees resigned or were terminated before they finished the Bureau's training program. Trainee attrition is a lost investment in the time and money spent to recruit, hire, and train new hires. It can be hard on morale, too. We also found that few trainees completed Emergency Communications' training program within the Bureau's timeline targets.

To promote trainee success, candidates applying for the position should have a clear picture of what the job entails. During on-the-job training, they should receive high-quality, consistent, and supportive instruction. Improving employee wellness and workplace culture also promotes trainee success.

We also found that there is a disconnect between the Training Department's efforts to improve hiring and training and perceptions of their efforts among some staff.

We make recommendations designed to help Emergency Communications improve training timelines, increase trainee retention, and reduce resistance to change.

Training was long and few trainees met timeline targets 

During our audit, Emergency Communications' goal was for 90% of dispatcher trainees to complete the training program and certify in all three disciplines within 18 months. To help trainees measure their progress and finish in 18 months, the Bureau established targets for the amount of time trainees should take to certify in each discipline, as well as for the number of weeks and hours to complete phases within each discipline.

The Bureau may terminate a trainee who exhausts their training hours without making sufficient progress. However, the training team (trainee, their coach, and their supervisor) may submit a request to the Training Department for additional time. 

Our review of Training Department data shows that few trainees met the Bureau's training timeline targets during the period of our review:

• Of 39 trainees who certified in all 3 disciplines, only two (5%) met the 18-month target; on average, trainees took over 26 months to certify in all three disciplines.
• Of 62 trainees who certified in call taking, only three (5%) met the 4-month target.
• Of 41 trainees who certified in police dispatch, only three (7%) met the 7-month target.
• The data we received from the Training Department was not nuanced enough to determine how many of the trainees who certified in resource dispatch met the 1.5-month target.

Emergency Communications' long training program is expensive. According to a 2024 analysis by Portland's Public Safety Service Area, each 18-month new dispatcher training costs approximately $137,000 in wages and benefits alone. Hiring costs, overtime expenses, and pay premiums for coaches add further costs. When training exceeds 18 months, the Public Safety Service Area estimated that each additional month costs about $7,500.

In addition to the high costs, there is a risk that trainees will resign if they become impatient or frustrated with the lengthy training process. Trainee morale and confidence may also decline over the course of two-plus years of daily feedback. The long training process and stress and exhaustion from constant training may contribute to coach burnout, as well.

The Training Department reported that its training timeline targets were not achievable for most trainees, based on the number of training hours available per day. The targets also did not account for trainees' leave. Although challenging goals can motivate employees, unrealistic goals can lead to frustration, burnout, and higher turnover. There is also a risk that unattainable goals could lead to misconduct, if employees feel so pressured to deliver that they take shortcuts. Moreover, requests for additional training time create extra work for training teams and the Training Department. Accordingly, in March 2026, the Training Department said they were updating the training timeline targets to better reflect available training hours and trainee leave.

Emergency Communications should address factors that contribute to long training timelines

Emergency Communications' training program takes a long time to complete, in part, because answering and dispatching 911 calls is a difficult job to learn. The Bureau's entry-level hires must acquire a range of specialized knowledge and skills. It is crucial that they can perform their duties competently, even under pressure. Emergency Communications' training program therefore includes time for trainees to learn and practice the skills they will need to carry out their important roles. 

The training program also takes a long time to complete because once they certify in call taking, trainees sometimes only train part-time; they spend the rest of their time working independently. What's more, during periods of low staffing and high call volumes, the Bureau has postponed dispatch training for some trainees who were certified in call taking so they could answer incoming calls. 

For these reasons, we found some length in the training process was necessary and appropriate. However, there are other factors that contribute to long training timelines that the Bureau should address. 

First, a trainee's assigned coach can influence the length of their training. During our audit, we interviewed and surveyed staff about Emergency Communications' dispatcher training program. We also reviewed the Training Department's exit interviews with trainees who resigned. We found that many employees provided very positive feedback about the Bureau's coaches. However, others, including trainees who resigned, raised concerns about coaching, such as inconsistencies in the quality of coaching, coaching style, training methods, guidance provided, and evaluation of trainees.

If trainees do not receive consistent, high-quality, supportive instruction, it may take them longer to understand and demonstrate required skills. Some trainee timelines may also be longer because their coaches impose higher standards on them than the Bureau requires. In addition, trainees who are frustrated with the guidance or support they receive may ask to change coaches, which can impact their momentum and extend their training.

Second, trainees who work slower shifts may not be exposed to certain call types for which they need to demonstrate competency. This can prolong their training. Trainees can use simulation exercises (SIM) for some tasks, but only if SIM is available and their training team decides to use it.

Third, limited coach availability can add time. Coaches earn and are entitled to take vacation, sick leave, and other time off. When a coach is absent, a substitute coach should instruct their trainee. Sometimes, no substitute coach is available or arranged. Even when a trainee has a substitute coach, they can lose momentum in the shuffle. Substitute coaches may also be reluctant to sign off on tasks because they are less familiar with the trainee's progress, which may further extend training timelines. 

Limited coach availability was especially challenging during the Bureau's recent staffing crisis. For example, Emergency Communications reported that as of June 1, 2023, it had 53 trainees and only 62 fully certified dispatchers. Having so many trainees at the same time meant that the Bureau did not have enough coaches to provide one-on-one instruction to each trainee. Coaches split their time between trainees, which extended training timelines. Emergency Communications also sometimes had to postpone training due to the pandemic or because staff were needed to answer 911 calls.

In 2023, Emergency Communications increased coaching pay premiums to attract more coaches. Still, some coaches are only willing to coach at certain times or in certain disciplines, which can make scheduling training difficult. As staffing increased, the Bureau has needed to hire fewer trainees, which has improved coach-to-trainee ratios. For example, the Training Department reported that as of June 1, 2025, there were 40 coaches for 32 trainees.

Finally, trainee leave can slow down training timelines, particularly when trainees take extensive leave or are absent at inopportune times. Leave is a benefit of employment that is guaranteed by City rule and Emergency Communications' labor agreement. Taking time off can also promote employee wellness. The Training Department said it therefore encourages trainees to be present for training whenever possible, but does not deny them leave. 

Emergency Communications should address factors that contribute to trainee attrition 

Emergency Communications experienced considerable trainee attrition during the period of our review. Our analysis of Training Department data shows that between July 2022 and December 2025, around 46% of dispatcher trainees were terminated or resigned. 

There is no standard or best practice for what should be considered "successful" training completion rates. While there is also no national repository for 911 staff turnover data, public safety consultant Mission Critical Partners estimated in 2021 that nationally, around 50% to 60% of dispatcher trainees complete their training. At about 54%, Emergency Communications' trainee retention rate is consistent with these estimated national trends. 

Nevertheless, trainee turnover is a lost investment in recruiting, hiring, and training. According to a 2025 Public Safety Service Area analysis, over the course of about 3.5 years, the City paid $3.4 million in salaries, benefits, and related costs for Emergency Communications dispatcher trainees who were terminated or resigned during training. That number would be higher if the Bureau's other recruitment, hiring, and training costs were included.

Recruiting, hiring, training, and then losing a trainee can also have an emotional cost. Trainee turnover can be hard on morale, and risks burning out coaches, supervisors, and the Training Department, who bear the burden of continually training new trainees. Moreover, having a reputation for high turnover may make the Bureau unattractive to potential job candidates.

We identified several areas in which Emergency Communications could improve in order to reduce trainee attrition.

Emergency Communications should provide more detailed information about the job during recruitment 

To help increase trainee retention, Emergency Communications' dispatcher trainee recruitment efforts should give potential candidates more information about the job. For example, although the job posting and related materials are generally in line with best practices, they could include (or link to) more detailed information about the skills that make someone a successful dispatcher. Providing more information to "paint a picture" of the job, adding a video or testimonials to the recruitment materials, and/or providing additional opportunities to preview the job could also be helpful.

The job pays a high salary for an entry-level position: as of 2025-26, dispatcher trainees earn $32.72 per hour plus benefits. The good pay helps attract candidates. For example, before it set application limits in 2025, Emergency Communications regularly received over 400 applications per posting. However, applicants may not have a realistic picture of what the job entails, including its downsides. Providing this information before people apply may improve applicant pools. 

Doing more to set clear expectations during recruitment processes could help Emergency Communications avoid expending resources to hire and train—and then lose—applicants whose strengths and expectations do not align with the job. Disclosing the realities of the position can also help build trust with new hires. 

In March 2026, the Training Department reported that it had secured funding to create a pre-Academy, which will give candidates an opportunity to experience the work before they complete the hiring process. The Training Department expects to launch the program in fall 2026.

Emergency Communications should do more to ensure trainees receive high-quality, consistent, and supportive instruction 

Some trainees leave their jobs at 911 centers—both voluntarily and involuntarily—because the job is complex and demanding and can be difficult to learn. Job requirements and performance expectations are high, and not everyone can meet them. 

To help promote trainee success and retention, Emergency Communications should ensure that trainees receive high-quality, consistent, and supportive instruction. However, as noted above, we learned about inconsistencies in the quality of coaching, coaching style, training methods, guidance provided, and evaluation of trainees. 

Some employees highlighted unsupportive treatment of trainees by some coaches, including coaches who are not open to questions, yell at trainees, and/or talk about trainees in front of other employees. We also heard reports that some employees of color do not feel supported in the workplace.

Figure 4. Employees highlighted inconsistencies in training methods and coaching style, challenges related to the quality of coaching, and unsupportive treatment of trainees

• "The extreme inconsistency in training methods and coach's styles is disconcerting and difficult to navigate." 
• "I have seen more than 1 trainee be let go [which] could have very likely been avoided, had they had a different coach."
• "I thought maybe I was just being too sensitive whenever [my coach] made me cry... and then [the] next two trainees quit shortly after being placed with [them]."

Source: Responses to Audit Services' 2025 survey of Emergency Communications staff.

Failing to offer consistent, high-quality, supportive instruction can diminish trainee confidence and increase confusion, frustration, and stress. It can also hinder trainee learning. In exit interviews, many trainees who resigned said they left the Bureau due to concerns about their performance. There is a risk that underperforming trainees may be terminated, even though they may have had success learning from a different coach. Additionally, if trainees do not learn needed skills, there are risks to the public from errors and lower quality services.

Although Emergency Communications has standardized guidelines for evaluating trainees, some coaches reportedly impose their own, higher standards. We learned that some coaches overly scrutinize trainee performance and expect perfection. When coaches are too critical and respond harshly to trainees' inevitable mistakes, it can stifle trainee confidence and morale and trigger resignations. An overly punitive or intolerable learning environment can also hinder trainee learning, including development of decision-making, problem-solving, and critical thinking skills that are essential for dispatchers.

Emergency Communications has written policies governing expectations for coaches and the Bureau's coach application and selection process. These policies help ensure that coaches understand their roles and possess the characteristics and qualifications they need to provide high-quality training. For example, according to the coach expectations policy, the Bureau expects coaches to:

• Serve as a teacher, coach, role model, and evaluator
• Comply with established training standards 
• Model a professional attitude and leadership skills
• Be courteous, patient, empathetic, flexible, and approachable
• Provide instruction suited to the learner's abilities and pace
• Help trainees learn from mistakes without undermining their long-term confidence

The coach application and selection policy states that prospective coaches should demonstrate characteristics such as a positive attitude, organizational skills, and professional interactions with callers and co-workers, as well as an absence of sustained complaints or disciplinary action.

To be eligible to coach, Emergency Communications requires Senior Dispatchers to obtain and maintain coaching certification through the Association of Public-Safety Communications Officials. The course covers practices specific to the Bureau, plus general topics, such as motivating and communicating with trainees, training adult learners, and evaluating trainee performance. Certificate-holders must earn continuing education credits to recertify every two years.

Emergency Communications' policy requires prospective coaches to receive a recommendation from their supervisor that documents how they satisfy the Bureau's selection criteria. In addition, they must be experienced in the discipline(s) they wish to coach. For example, to coach call taking, Senior Dispatchers must be certified in call taking for at least six months.

Although the Training Department said it vets potential coaches, it did not have a record of a supervisor recommendation on file for 21 coaches (37%) who coached during the period of our review. Eleven coaches had expired coaching certifications. In addition, 27 coaches (47%) did not obtain their coaching certification before they began coaching. We note, however, that ten of those coaches started coaching while the Training Department had suspended the training certification prerequisite because it needed coaches. 

In March 2026, the Training Department reported that it was making plans for coaches to complete the training needed to update their Association of Public-Safety Communications Officials certifications.

Figure 5. We identified gaps in coach qualifications and Training Department records

Source: Audit Services' analysis of Emergency Communications' Training Department data.

When the Training Department allows coaches to begin coaching before they complete the required certification, those coaches miss out on instruction designed to help them develop and maintain their coaching skills and ensure trainees receive high-quality training. 

The Bureau offers few opportunities for ongoing coaching training to help coaches continue to develop their skills. Few coaches who participated in our survey said they had received any coaching training beyond the basic Association of Public-Safety Communications Officials course. Most also said they would like more support to help them develop their coaching skills.

Several survey respondents suggested that Emergency Communications should be more selective when choosing coaches. More complete records that show careful vetting of prospective coaches would help the Training Department demonstrate that coaches meet the Bureau's high standards. In spring 2026, the Training Department said it was taking steps to improve its coach application and record-keeping practices. It also updated the coach expectations document to help ensure that coaches have a consistent understanding of what is expected of them. 

Emergency Communications should give coaches feedback on their performance. Constructive feedback helps coaches develop their skills. However, Emergency Communications' has given coaches only limited feedback about their performance. In our survey, 23 coaches (72%) said they had not received helpful feedback about their coaching skills. Many respondents provided additional narrative responses about the need to assess coach performance. Training Department staff acknowledged that coaches do not get enough feedback.

The Bureau should also tell coaches what they are doing well. Positive feedback reinforces good practices and boosts confidence and morale. Plus, recognizing coaches for their vital contributions to the Bureau can help combat the stress of the role. In our survey, 25 coaches (78%) agreed that being a coach is very stressful because they feel responsible for their trainee's success, and only seven (22%) said they feel appreciated for the work they do as coaches.

Figure 6. One coach highlighted challenges, including a lack of support and recognition

"… Coaches are responsible for the development of these trainees and the day-to-day impact of their performance. Coaches absorb this emotional labor and are solely to blame when a trainee is struggling. Coaches don't actually get meaningful authority, support, or recognition to match this responsibility. This imbalance makes the role harder to sustain."

Source: Response to Audit Services' 2025 survey of Emergency Communications staff.

During our audit, the Training Department developed a Coach Feedback Form to allow trainees to offer positive and constructive feedback about coaching. The Training Department expected the form to go live in March 2026. 

Figure 7. The Training Department developed a form to enable trainees to offer coach feedback 

View full size image of Screenshot of Emergency Communications’ Coach Feedback Form, which asks the trainee to choose 3-5 ways this coach creates a positive learning experience.

Emergency Communications should give trainees more positive feedback 

911 centers should offer positive feedback to help boost trainee confidence and morale. A lack of recognition contributes to trainee turnover, while celebrating successes can help create a culture of positivity in which trainees thrive.

Emergency Communications has some avenues for positive trainee feedback. For example, the trainee evaluation system allows coaches to give high scores to recognize outstanding performance. The system also prompts training teams to think about big wins. We learned about efforts by some supervisors and managers to celebrate good work, too.

However, we found that trainees should receive more positive feedback about their performance. In our survey, most coaches said they should have more tools to recognize trainee achievements and boost confidence and morale. In addition, most trainees and new dispatchers said that at times, they felt their coach was overly critical.

Emergency Communications should continue efforts to improve employee wellness and workplace culture 

911 call taking and dispatching is a difficult and stressful job. For trainees and coaches, learning and teaching the job, day in and day out, may be even more difficult and stressful. At Emergency Communications, several trainees who resigned named the stress of the job and/or the toll it was taking on their mental health as a main reason for leaving. Stress can also amplify negative attitudes and breed conflict, gossip, and a culture of negativity. These workplace culture challenges can fuel even more turnover. 

During our audit, several experienced staff members said Emergency Communications had a toxic culture in the past, but that it had improved. Many trainees and newer dispatchers highlighted positive aspects of the Bureau's culture, including related to encouragement, support, and equity. The Bureau has established a mentoring program that pairs trainees with newly certified mentors to provide additional support and guidance. The Training Department also said it tries to foster positive relationships between trainees and Senior Dispatchers during Basic Academy.

Despite these improvements, culture challenges persist. For example, some staff noted gossip, cliques, put-downs, and cattiness. We learned that there is still a culture of "eat our young," with newer hires being talked down to, judged, and/or ignored by some more senior employees. Several trainees who resigned pointed out negative aspects of Emergency Communications culture, particularly toward trainees. Some trainees who resigned reported feeling not just unwelcome, but treated as "less than" or dehumanized.

No current trainees or new dispatchers who responded to our survey said they had experienced hazing, harassment, discrimination, or bullying in the workplace. However, when our survey asked more experienced employees if one or more trainees had experienced those behaviors since July 2022, twelve employees (21%) agreed. We were unable to determine whether impacted trainees did not respond to our survey because they chose not to participate or because they had left the Bureau.

Changing culture in Emergency Communications' fast-paced, high-stress workplace may take time and effort. That may be challenging in a 911 environment designed to immediately solve problems. However, creating a supportive culture, where trainees and experienced staff alike feel valued and respected, can help reduce turnover. 

Moreover, if workplace culture improvements can improve trainee retention, that retention may, in turn, help spur further culture improvements. If more trainees stay and certify, it will relieve some of the pressure on Senior Dispatchers and decrease the training churn. Increased staffing may also allow employees to take time away from their headsets for other activities, such as training and wellness.

There is a disconnect between staff perception and Training Department efforts 

Change can be difficult in all workplaces. Employees may resist changes for many different reasons. For example, some employees resist change because they like the familiarity of current practices, perceive the change as unfair, or fear the change will impact their job security or workload. Others do so because they distrust leadership, doubt the organization can effectively manage the change, fear losing influence or control, or disagree with management's chosen approach. Sometimes, employees struggle with new practices because they feel overwhelmed by constant change ("change fatigue").

It can be especially difficult for employees to embrace change if management does not communicate effectively and provide sufficient information about the purpose, benefits, and/or impacts of the change. 

When employees resist change, they may have negative attitudes or push back, even when the new practices are improvements. This resistance can also lead to decreased productivity, increased stress levels, and reduced employee morale. Misinformation can also spread, which may lead to further resistance. 

During our audit, many employees provided negative feedback about the Training Department's work. We appreciate that these employees shared their perspectives with us and acknowledge that their experiences are valid. We also note that critical feedback likely means that staff care deeply about the Bureau and want the training program to be successful. 

That said, for almost every complaint we heard, the Training Department had a reasonable justification for their practices. We share three (of many) examples of staff concerns to illustrate. 

• Some staff said the 40 words per minute (WPM) typing benchmark for hiring is too low. 
  • The Training Department decreased the typing requirement from 45 WPM to 40 WPM in 2016. According to the Training Department, most current dispatchers were hired under the 40 WPM standard. 
  • The Training Department said that 40 WPM is an appropriate standard to get candidates in the door, since younger generations may have less exposure to keyboarding. Still, the Training Department reported that in two recent academies, average typing speeds were 55 and 56 WPM.
  • We found similar or lower typing requirements in comparable jurisdictions, such as Sacramento (40 WPM), Albuquerque (40 WPM), Las Vegas (35 WPM), and Milwaukee (30 WPM). 
• Some staff said Basic Academy is too long and that trainees should start on-the-job training sooner. 
  • The Training Department said it moved some early on-the-job training tasks to Basic Academy because it is more efficient and consistent to have one instructor teach all trainees the same content, instead of having coaches teaching each trainee individually. Given the inconsistencies in coaching we identified, this approach seems reasonable. 
  • Trainees attend Basic Academy together as a cohort. While the curriculum might move too slowly for some trainees in the group, it can be too fast for others.
• Some staff said the Training Department lowered the standards for Basic Academy, making more work for coaches when trainees move to on-the-job training. 
  • The Training Department said the standards have not changed, but they adjusted when and how trainees are evaluated to create a more supportive learning environment. The Training Department also noted that although they modified some testing requirements, many trainees are still terminated during Basic Academy.

This disconnect between Training Department efforts and how some staff perceive those efforts may fuel negativity and workplace culture challenges, which can impact trainee success and retention. In addition, a narrative among some staff that the training program produces less skilled dispatchers is harmful to newer staff. Employees who have completed the Bureau's long and rigorous training program have earned their spots and should be welcomed, supported, and celebrated. 

Figure 8. One employee shared concerns about harmful employee comments

"When Bureau staff of all levels - coaches, floor staff, admin, and management are making comments about the Bureau lowering standards to hire diverse trainees, it shows a huge lack of trust for the community we serve. Standards haven't been lowered, and our ‘diversity' has only slightly increased. Making statements like that is detrimental to staff of varied backgrounds, but builds a mentality with existing staff that emboldens them to mistreat staff who they perceive as different. The culture as a whole needs to change or the toxic culture we have now will only persist."

Source: Response to Audit Services' 2025 survey of Emergency Communications staff.

We concluded that the disconnect between staff perceptions and Training Department efforts is likely due, at least in part, to resistance to change. Emergency Communications' fast-paced environment, in which call takers and dispatchers have little time to review information that is not critical, may make it difficult to effectively communicate about changes. 

A key component of change management involves clear and effective messaging about changes, early and often. Healthy communication reduces confusion and uncertainty. It can also build trust and help employees feel respected, which promotes retention.

Conclusion 

Portland's Bureau of Emergency Communications has emerged from a dire staffing crisis by focusing significant resources on recruiting, hiring, and training the next generation of dispatchers. These efforts have helped dramatically improve 911 call wait times for our community.

Now, the Bureau should work to reduce training timelines, address the factors that contribute to trainee attrition, and more effectively manage change. Greater attention to some of the softer, people-focused aspects of the job may promote trainee success and retention, and lend more support to all Bureau staff as they perform their difficult but essential roles in keeping the public safe.

Recommendations

To help improve training timelines, ensure trainees receive high-quality, consistent, and supportive instruction, and further promote trainee retention:

The Bureau of Emergency Communications' Training Department should: 

1. Include more detailed information in its recruitment materials about needed skills and the demands of the job 
2. Work with the Bureau's Operations leadership to help ensure that substitute coaches:
   1. Are assigned to provide training when primary coaches are unavailable
   2. Have the guidance and tools they need to take an active role in signing off on trainee progress
3. Continue its efforts to encourage and facilitate trainee use of simulation exercises to demonstrate skills
4. Identify and implement opportunities for coaches to receive additional training to enhance their coaching skills
5. Monitor the effectiveness of its new coach feedback process and refine it, as needed, to ensure continuous improvement 
6. Develop training or tools for coaches to help calibrate coach expectations for trainee performance and promote the use of positive feedback

The Bureau's Operations leadership should:

7. Continue to identify and implement efforts to improve workplace culture, including a more supportive and inclusive culture for trainees

To help reduce resistance to change, the Training Department should:

8. Improve its change management practices, perhaps in coordination with Operations leadership 

   We provided Emergency Communications' Director and Training Manager with more detailed information about effective change management practices. Implementing the other recommendations outlined in this report should also help the Bureau address staff concerns and promote trust in the Training Department's practices.

The City Administrator agreed with our findings and recommendations 

We provided this report to the City Administrator, the Director of the Bureau of Emergency Communications, and the Bureau's Training and Development Manager. The Director and Training and Development Manager responded on behalf of the City and agreed with our audit recommendations.

How we did our work

Our audit objective was to determine if the Bureau of Emergency Communications' recruitment, hiring, and training practices help identify candidates that succeed in training and are employed long-term. 

The audit focused on recruitment, hiring, and training processes for new Emergency Communications dispatchers since July 1, 2022. To be as timely as possible, our scope ended between May 2025 and March 2026, depending on the dataset. 

To accomplish our audit objective, we:

• Conducted 52 interviews with Emergency Communications' leadership and staff, as well as with employees from other City bureaus
• Reviewed Emergency Communications websites, reports, standard operating procedures, and recruitment and training materials
• Observed City Council meetings related to 911 and Emergency Communications 
• Reviewed best practices, media, other audits, and applicable policies and agreements 
• Researched recruitment, hiring, and training practices at 911 centers in other jurisdictions 
• Reviewed the results of prior Emergency Communications employee surveys, including its 2025 Pillars of Wellness survey, 2024 Equity and Workplace Culture Audit, and 2023 Stay Survey
• Analyzed demographic data provided by the Bureau of Human Resources related to dispatcher recruitment and hiring 
• Participated in a sit-along to observe operations at Emergency Communications 
• Observed trainees practicing police dispatch 
• Conducted an anonymous survey of Emergency Communications employees to gather their perspectives on recruitment, hiring, and training practices; the survey was open from December 9, 2025 until January 8, 2026 and received 73 responses (just under half of the Bureau's employees)
• Analyzed data provided by the Training Department and the Bureau of Human Resources related to new dispatcher recruitment, hiring, and training, including data to show:
  • The number of applicants for dispatcher trainee positions
  • Hiring timelines for new dispatcher recruitments that opened between July 2022 and May 2025, calculated from recruitment closing dates to new hire start dates
  • Retention rates and training timelines for trainees who participated in the training program between July 1, 2022 and December 4, 2025, including certification timelines for trainees who participated in the training program during this window and started training between November 2019 and April 2024 and thus had at least 18 months to complete training by December 2025 
  • Qualifications of coaches who coached between July 2022 and March 2026
• To assess the reliability of the data we analyzed for this report, we:
  • Tested for obvious errors in accuracy and completeness
  • Worked with Training Department staff to identify and address data concerns
  • Brought discrepancies (such as missing data, duplicate records, and data entry errors) to the Training Department's attention and worked with the Training Department to correct discrepancies before finalizing our analyses 

We determined that the data was sufficiently reliable for the purpose of describing trends in Emergency Communication's hiring and training practices.

We conducted this performance audit in accordance with generally accepted government auditing standards. Those standards require that we plan and perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our findings and conclusions based on our audit objective. We believe that the evidence obtained provides a reasonable basis for our findings and conclusions based on our audit objective.

Audit Team: 

Simone Rede, City Auditor
KC Jones, Audit Services Director
Jennifer Amiott, Senior Performance Auditor
Maddi Roemeling, Senior Performance Auditor