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Later in the game the academy is your best choice or send one rookie with several pros (unless it is a REALLY dangerous case, where there shouldn't be rookies). That way they will learn quick enough to be decent officers (the game claims 150 is average, where they will get most jobs done, but at least it feels like in the late game the "average" is rising. Don't know if it's just my imagination).
Back to the actual question: Just like Mugabinator said, if you really send your best people and even staff all the slots with them, something may be off with your game. Especially if they have professionalism between 500 and 1000 points.