It's the supervisors responsibility to see to it that the entire department follows this policy. A good example is that a dog should clear a burglary building before the officers go inside, not the other way around. When patrol officers break policy they need to have a talk, if the problem continues, they need a letter of discipline in their personal file. Administrators need to understand that service dogs are no different than new recruits. The K9 team gets better with time.
Nothing can substitute for on the job experience.
I believe a new dog team takes a year to gain the confidence needed to reach peak performance. A perfect example of this is the RCMP in Canada. They run their new handlers through a 20 week training course before they are put on the street. Then a year later they are brought back to the training center and are expected to re certify at a higher standard. It's the K9 handlers job to become a politician.