HomeMy WebLinkAbout16 - NB-2 - Reorganization of Costa Mesa PD - 6/21/2011CITY COUNCIL AGENDA REPORT
MEETING DATE: JUNE 21, 2011 ITEM NUMBER:
SUBJECT: REORGANIZATION OF COSTA MESA POLICE DEPARTMENT
DATE: JUNE 16, 2011
FROM: OFFICE OF THE CEO
PRESENTATION BY: THOMAS R. HATCH, CHIEF EXECUTIVE OFFICER
FOR FURTHER INFORMATION CONTACT: THOMAS R. HATCH, (714) 754-5328
RECOMMENDATION:
It is recommended that the City Council approve the following recommendations:
1. Receive and file the report entitled "Police Department Organization Review" as
prepared by Management Partners, Inc.;
2. Receive and file the memo from the Interim Police Chief regarding the
reorganization of the Police Department;
3. Adopt the recommendations numbers 1 through 11 of Table A and
recommendations 1 through 13 of Table B as outlined in this staff report; and
4. Direct staff to modify the CEO's Proposed FY 2011-2012 Budget to include the
financial impact as described in the outlined recommendations.
BACKGROUND:
The City retained Management Partners in February of 2011 to conduct a high level
organization review (Review) of the Costa Mesa Police Department. The City asked
Management Partners to identify an organizational structure that optimizes the
Department's efficiency and effectiveness. Because of the City's significant budget gap
and such a large percentage (over 36%) of the General Fund budget allocated to the
Police Department, it was necessary to commence this Review.
Attachment 1 of the report is the Review. This staff report will not fully outline each detail
highlighted in the Review but will summarize the recommendations. The Review includes:
• an executive summary;
• background on the department;
• approach to the project;
• summary of stakeholder interviews including responses questions related to what is
working well, what needs to be improved and what are the challenges in the future
for the Department;
• discussion of benchmarking;
• review of statistics;
• analysis and recommendations; and
• conclusion.
1
The Interim Chief of Police also prepared and provided a Department Reorganization
Memo (Memo) to the CEO as part of this process. The Memo is included as Attachment 2
of this report and it includes:
• an overview;
• primer on community oriented policing;
• discussion of past and current staffing levels;
• alternate one — sworn staffing levels in the range of 140 to 145;
• alternate two — sworn staffing levels in the range of 125 to 130;
• alternate three — sworn staffing levels below 125;
• concept to recruit and train a significant volunteer crew;
• regional SWAT Team concept; and
• summary and conclusion.
The Review and Memo provide significant detail and practical analysis. This information
was central to the formulation of the final recommendations. One caution is the Review
and Memo should be considered high-level analysis that did not fully cover all areas of the
organization in significant detail. Given the nature of this higher-level study, it is difficult to
draw specific conclusions in some areas. More study may be needed in some areas.
ANALYSIS -
Based on the analysis and specific recommendations in both the Review and Memo along
with helpful discussions with various stakeholders, the recommendations are listed below
in Table A. Included in Table A is a final recommendation from Management Partners, a
response from the CEO with either "Strong Support" or "Support" for each
recommendation and a recommended action step to implement the change all provided
for City Council consideration:
Table A
F
Recommendation
CEO
Action Step
Response
1
Implement a regional special
Strong
CEO will assign new Police Chief the
weapons and tactics (SWAT)
Support
responsibility to work with neighboring
team
jurisdictions to implement this
recommendation on or before July 1, 2012.
2
Increase the ratio of non -sworn
Strong
CEO is making several recommendations
to sworn personnel to reduce
Support
below in Table B implementing this
costs and maintain service
recommendation.
3
Analyze K-9 calls for service to
Support
Department staff will be asked to develop a
determine if K-9 unit can be
report on how this can be implemented
included with patrol beat
including the related impacts of this change.
4
Contract Animal Control
Support
The process has already started and an RFP
Services
is ready for release to obtain contract
services. A decision on contracting out should
be completed by September.
5
Implement a succession plan
Strong
The new Police Chief will work with
Support
department personnel to develop and
implement a plan by July 1, 2012.
6
Implement a training program
Strong
The new Police Chief will work with
F
The above eleven recommendations reduce the number of authorized sworn personnel from
143 to 136 and increase the number of non -sworn personnel from 56 to 57. This equates to a
total reduction in full-time personnel from 199 to 193. This is in addition to the existing 9.8 full-
time equivalent positions that are authorized as well.
3
Support
department personnel to develop and
implement a plan by December 2011.
7
Eliminate the non -sworn
Strong
Incumbent has announced her planned
Commander position in the
Support
retirement effective October 1, 2011. The
Technical Services Div. and
elimination of this position will be included in
include those functions in the
the FY 2011-2012 Budget with an effective
Support Services Div.
date of September 30, 2011.
8
Eliminate two of the eight
Support
• One incumbent has announced his
sworn Lieutenant positions and
planned retirement effective on or before
consolidate span of control of
December 31, 2011. The elimination of
service areas
this position will be included in the FY
2011-2012 Budget with an effective date of
December 31, 2011.
• The elimination of a second position will be
included in the FY 2011-2012 Budget with
an effective date of September 30, 2011.
This position is currently filled but will be
eliminated on or before September 30,
2011.
• The vacant Police Captain position will
remain unfilled until at least September 30,
2011 to allow the City to achieve salary
savings while phasing in this change. The
CEO may authorize filling this position
sooner after discussion with the new
Police Chief.
9
Eliminate one additional sworn
Strong
The elimination of a third Lieutenant
Lieutenant position bringing the
Support
position will be included in the FY 2011 -
total reduction from eight
2012 Budget with an effective date of
positions down to five
September 30, 2011. This position is
positions. Add a non -sworn
currently filled but will be eliminated on or
Logistical Support Manager
before September 30, 2011.
position
The non -sworn Logistical Support
Manager position will be included in the
Budget effective September 30, 2011.
10
Eliminate one Sergeant and
Strong
The elimination of the Sergeant position and
add one non -sworn Special
Support
the creation of the non sworn Special Events
Events Coordinator position
Coordinator position will be included in the
Budget effective September 30, 2011.
11
Eliminate three Police Officer
Strong
The elimination of three Police Officer
positions
Support
positions will be included in the Budget
effective September 30, 2011 or earlier as
positions are vacant.
The above eleven recommendations reduce the number of authorized sworn personnel from
143 to 136 and increase the number of non -sworn personnel from 56 to 57. This equates to a
total reduction in full-time personnel from 199 to 193. This is in addition to the existing 9.8 full-
time equivalent positions that are authorized as well.
3
The table below (Table B) is a listing of additional recommendations that are proposed by the
CEO. The goal in supporting the recommendations above, as provided by Management
Partners, as well as presenting the recommendations below, was to reduce costs, create
efficiency, encourage innovation and minimize the service impacts to the community. Some of
the recommendations below in Table B discuss some recommendations outlined above. It
these cases, the recommendation below should be seen as overriding the initial
recommendations from above.
Table B
n
CEO Recommendation
Level of
Support
Action Step
1
Set the authorized level of
Support
The City has accepted a federal COPS grant
sworn personnel at 125.
and the CEO will direct the Police Department
Immediately utilize available
and Finance Department to proceed to
federal COPS grant funding to
implement the grant with funding commencing
authorize an additional five
effective October 1, 2011 in an effort to
sworn positions for a revised
prevent further reductions in staffing. The
total of 130.
COPS grant provides funding for three years
for five officers with the City committing to fund
these five officers for the forth year.
2
Reduce the recommended
Support
The CEO will ask the new Police Chief to use
number of sworn positions from
his/her professional expertise to
136 as proposed by
restructure/redeploy a maximum of 130 sworn
Management Partners down to
personnel and create a new organizational
130.
chart. The following are possible alternatives
for the new Police Chief to consider:
• The Management Partners Review
suggested the likelihood of successfully
folding the K-9 Unit into the regular patrol
beat. This needs review but it could
reduce the number of sworn from 136 to
134.
• The Traffic Bureau has been operating
with one position on leave for an extended
period of time. The new Police Chief will
be asked to evaluate the level of staffing in
the Traffic Bureau and propose an
appropriate staffing level to the CEO.
• The City has two sworn School Resource
Officer positions — one funded by the City
and one funded by the School District. An
option that could be explored is to convert
the two sworn positions to three non -sworn
positions for approximately the same total
compensation. The new Police Chief will
be asked to evaluate this option with input
from key stakeholders.
• A regional SWAT Program will likely save
significant sworn staff hours because of
reduced training time for each participating
n
jurisdiction. This will provide an
opportunity to include those hours into
other areas of the department and could
assist in further reducing the number of
sworn staff.
• The change down to a maximum of 130
sworn personnel would be effective
September 30, 2011.
3
Expand the volunteer program
Strong
The CEO will ask the new Police Chief to
to allow more members of the
Support
develop a comprehensive volunteer program
community to actively support
with detailed goals and an aggressive list of
efforts in increasing community
tasks and jobs for volunteers to assist the
safety. Add a non -sworn
department. The Chief will also propose a
Volunteer Coordinator position
new title and a challenging job description for
to coordinate and support this
this new position. The key expectation is that
effort.
the Police Chief will engage the community
and welcome them by providing meaningful
ways the community can better connect with
and help the department. This position will be
included in the FY 2011-2012 Budget effective
December 31, 2011.
4
Put the responsibility for
Strong
Currently, the Telecommunications Division is
managing the operations of the
Support
managed by a non -sworn manager position
Telecommunications Division
from the Administrative Services Department.
(911 dispatch) under the Police
Currently, 92% of the calls are for the Police
Department
Department, it is operationally more efficient to
relocate the day-to-day management to the
Police Department. The management would
change from a non -sworn manager to a sworn
Police Lieutenant. This Lieutenant would be
most effective on an 8 hour per day/five day a
week work schedule. The off -hour
management of Telecommunications would
be through the on -duty Watch Commander or
as determined by the Police Chief. This
enhanced connection will facilitate the use of
light-duty officers to assist
Telecommunications staff with service calls,
answering questions and taking reports. This
change would be effective October 1, 2011
and result in the layoff of current
Telecommunications Manager. If
Telecommunications is ultimately outsourced,
the contract management responsibility would
still be with the Police Department. This
change would increase the number of sworn
personnel from 130 up to 131.
5
Obtain consulting services to
Strong
Staff will include the necessary funding in the
study how
Support
FY 2011-2012 Budget for the comprehensive
Telecommunications and
review of the operations of
Police Records can better
Telecommunication and Records and how
share information, consolidate
they can be better integrated in their work
effort and automate work
processes. In addition, the review will
processes
determine how technology upgrades can
further create efficiencies.
6
Contract for Helicopter Support
Strong
The ABLE Commander position is already
Services
Support
included in the budget but this
recommendation would add $150,000 in
General Funds to contract for Helicopter
Support Services. This recommendation was
approved by the City Council on June 7t"
7
Add one Park Ranger position
Strong
Park Rangers help ensure safe parks and
(increase number from 2 to 3),
Support
additional focus on Lions Park is needed.
a Community Services
Community Services Specialists make the
Specialist position (increase
Department more efficient and take field work
from 6 to 7) and add a Crime
away from sworn officers. More support is
Scene Specialist (increase
needed to better manage crime scenes.
from 2 to 3).
These positions will be included in the FY
2011-2012 Budget effective December 31,
2011.
8
Increase the allocation for
Strong
Reserve Officers are valuable and provide
Reserve Officers by $200,000
Support
very efficient services. Increasing the
or 7,382 total hours
availability of hours for these part-time
positions can significantly help the Department
with workload issues as appropriate.
9
Obtain consulting services to
Strong
An expert in this area can work with
study the long-term technology
Support
Department staff and IT Division staff to
needs of the Police
develop a solid technology strategic plan by
Department.
June 2012.
10
Create a Department task force
Strong
The new Police Chief will conduct an
to brainstorm long-term capital
Support
assessment of facilities and equipment and
facility and capital equipment
organize a task force to complete a plan by
needs and develop a plan for
January 2012.
the expenditure of
approximately $4 to $6 million
in Narcotics Forfeiture Funds.
11
Develop a plan to meet the
Strong
The new Police Chief will be asked to
challenges of paroles, sex
Support
determine how to increase our efforts to
offenders, motels, and group
proactively limit the impact on Costa Mesa
homes in Costa Mesa.
from visitors and those assigned a location in
the community. A plan will be completed by
December 31, 2011.
12
Study alternative work
Support
Personnel from the Police Department have
schedules for the Police
expressed interest in reviewing alternative
Department.
shift schedules as a way of creating greater
efficiency in field operations. The new Police
Chief will be asked to review this issue.
13
Obtain consulting services to
Support
Questions have been raised about the Traffic
study in greater detail the
Bureau and it would be appropriate to utilize a
structure, operations and the
consultant to review issues and develop
associated revenue of the
recommendations.
Traffic Bureau.
The above thirteen recommendations further reduce the number of authorized sworn
personnel from 136 to 131 and increase the number of non -sworn personnel from 57 to
64. This equates to a total reduction in full-time personnel from 199 to 195, and with the
addition of 4 FTE's of Police Reserve Officers (7,382 hours), this will equate to a
comparable level of current service hours. This is in addition to the existing 9.8 full-time
equivalent positions that are authorized as well.
POSITION SUMMARY:
Sworn
Lieutenants
(2)
Lieutenant
(1)
Sergeant
(1)
Police Officers
(3)
Police Officers
(6)
Lieutenant
1
Total 12 Reductions
*Plus the addition of 7,382 hours of Police Reserve Officer time
Non -Sworn
Police Commander (1)
Logistical Support Manager 1 (new position title)
Special Events Coordinator 1 (new position title)
Community Service Specialists 3
Volunteer Coordinator 1 (new position title)
Community Services Specialists 2 (Park Rangers & Patrol)
Crime Scene Specialist 1
Total 8 Additions
Net 4 Reductions
ALTERNATIVES CONSIDERED:
1. The City Council could decide to implement all or select specific
recommendations for implementation;
2. The City Council could determine that additional research is needed along with
additional outreach on these issues prior to making any decision; and
3. Additional studies can be conducted on specific service areas to determine if
additional efficiencies can be achieved.
FISCAL REVIEW:
Attachment 3 is a complete analysis of the financial impact from the implementation of the
recommendations. Included in Attachment 3 is the projected savings for each position for
FY 2011-2012 with its phased -in approach as well as an annualized savings amount. The
total savings from adopting the recommendations is $1,229,880 (Study Session
Reported $1,357,725 — error of not adding back one Lieutenant position) for next
fiscal year.
7
LEGAL REVIEW:
No specific legal review is required at this time. City staff will need to hold discussions with
impacted bargaining groups to meet and confer as appropriate. The City has already
completed the paperwork with legal review for the federal COPS grant program.
CONCLUSION:
The recommendations above represent many significant changes to the organizational
structure of the Police Department. They also represent some service level reductions.
Some of the impacts from the service level reductions are minimized by using lower cost
non -sworn positions. If the recommendations are approved, staff will proceed to enhance
communication to help ensure the effective implementation of the changes. Regular
updates will be provided to the City Council and community regarding the progress of the
reorganization.
THOMAS R. HATCH
Chief Executive Officer
ATTACHMENTS
1
2
3
LAWRENCE D. HURST
Finance Director
Management Partners Review
Interim Police Chief Memo
Financial Analvsis
City of Costa Mesa
Police Department organization Review
May 2011
ATTACHMENT 1
MANAGEMENT PARTNERS
IN C 0 R P 0 K A T E D
Mr. Tom Hatch
Chief Executive Officer
City of Costa Mesa
77 Fair Drive
Costa Mesa, CA 92626
Dear Mr. Hatch:
ATTACHMENT 1
MANAGEMENT PARTNERS
I N C_ 0 R P O R A T L D
May 26, 2011
Management Partners is pleased to provide this high level organization review of the Costa
Mesa Police Department. This report provides you with reconunendations for a new
organizational structure for the Police Department that maintains corruniniity-oriented policing
and a high level of customer service at a reduced cost.
This report includes eight recoirunendations designed to optimize the department's efficiency
and effectiveness. These recommendations range from implementing a regional special
weapons and tactics (SWAT) team with neighboring jurisdictions to reducing and restructuring
the divisions within the department. Overall, when implemented, our staffing
reconunendations and proposed organization structure are estimated to reduce annual
expenditures by over $1.1 million.
Sincerely,
Gerald E. Newfarmer
President and CEO
2107 North First Street Suite 470 5 Park Plaza, Suite 1520
San Jose, CA 95131 jvivw.manageinentpartners.com Irvine, CA 92614
408 437 5400 949 222 1082
Fax 453 6191
ATTACHMENT 1
Police Department Organization Review
Table of Contents Management Partners
Table of Contents
ExecutiveSummary..................................................................................................................................1
Background................................................................................................................................................3
ProjectApproach.......................................................................................................................................5
DocumentReview............................................................................................................................5
StakeholderInterviews....................................................................................................................5
Benchmarking.............................................................................................................. .....................
Benchmarking............................................................................................................................................
8
Analysisand Recommendations..........................................................................................................16
SWATTearn....................................................................................................................................16
Use of Sworn Compared with Non -Sworn Staff.......................................................................18
K-9 Units..........................................................................................................................................22
AnimalControl...............................................................................................................................23
TalentDevelopment.......................................................................................................................
24
Cortipoltents of a S¢4ccession Plaiiiibig Progratrr......................................................................25
OrganizationalStaffing Changes.................................................................................................27
Conclusion................................................................................................................................................
30
Attachment A: List of Recommendations...........................................................................................31
Attachment B: Proposed Costa Mesa Police Department Organizational Chart........................32
iii
ATTACHMENT 1
Police Department Organization Review
Table of Contents Management Partners
Figures
Figure 1. Costa Mesa Police Department Organizational Chart FY 2010-11 ...............................3
Figure 2. Sworn Officers per 1,000 PopuIation.................................................................................9
Figure 3. FY 2010-11 Police Services Cost Per Capita....................................................................10
Figure4. Cost Per Call for Service....................................................................................................11
Figure5. Crimes Per Sworn Officer.................................................................................................12
Figure 6. Part 1 Crimes per 1,000 Population..................................................................................14
Figure 7. Costa Mesa Police Department Patrol Call for Service Workload 2009 and 2010...20
Figure 8. Costa Mesa FY 2010-11 Non -Sworn to Total FTEs........................................................22
Figure 9. Costa Mesa Police Department — High Level Proposed Organizational Chart....... 28
Tables
Table 1.
Benchmark Cities` Populations..........................................................................................7
Table 2.
FY 2010-11 Total Police Department Staffing and Budget............................................9
Table 3.
Crime Counts and Calls for Service for the Peer Agencies.........................................10
Table 4.
Total Calls for Service and per Capita Calls for Service 2009-2010 ...........................
12
Table 5.
Average Violent Crimes from Uniform Crime Reports 2008 to 2010 ........................13
Table 6.
Average Property Crimes from Uniform Crime Reports 2008 to -2010 ......................13
Table 7.
City of Costa Mesa SWAT/Hostage Negotiation Team Callouts 2006 to 2010 ........17
Table8.
K-9 Calls for Service Data 2010.........................................................................................23
iv
ATTACHMENT 1
Police Departinent Organization Review
Executive Sunu nary Management Partners
Executive Summary
The City of Costa Mesa retained Management Partners in February 2011
to conduct a high level organization review of the Police Department.
The purpose of the project was to identify an organization structure that
optimizes the department's efficiency and effectiveness.
Management Partners' project team members conducted interviews with
department staff and reviewed munerous documents. In addition, we
conducted a benchmarking study to examine relevant indicators from
peer agencies. Our study indicated that the employees are committed to
providing duality services to the community. However, there are
organizational structure and efficiency improvements that can be
implemented that will maintain the City's commitment to customer
service while providing services at a reduced cost.
As a result of the review, we identified opportunities for improvement
and have made eight recommendations for change (see Attachment A for
a complete list) including a new organizational structure for the
department. When implemented, we estimate that these
recon anendations will result in savings of over $1.1 million annually.
The recommendations are summarized below.
• Implement a regional special weapons and tactics (SWAT) teaun
with neighboring jurisdictions.
• Increase the ratio of non -sworn to sworn personnel to reduce
expenditures while maintaining customer service.
• Analyze the K-9 calls for service data to determine if these
positions can be included as part of a regular patrol beat.
• Contract animal control services.
• Develop and implement a succession plan..
• Implement both an internal and external training program.
• Eliminate one conunander position, three lieutenant positions, one
sergeant position and three officer positions.
• Add one non -sworn logistical support manager position and one
non -sworn special events coordinator position.
ATTACHMENT 1
Police Department Organization Review
Executive Sunnnnary Management Partners
This project was a high level organization review and did not include a
detailed workload and scheduling analysis. It is possible that additional
staff reductions could be made with a more in-depth analysis of the
patrol staffing and scheduling.
During the course of this organization review, Management Partners
learned that the Costa Mesa Police Department was simultaneously
completing its awn internal organization review of the department.
Management Partners' staff has not seen a copy of the study completed
by the Police Department and we are not aware of any information that
has been included in that study (and vice versa). We further recommend
that the City bring the two reports together to foram one set of
recoirunnendations for implementation to improve the efficiency and the
effectiveness of the department.
ATTACHMENT 1
Police Departfnent Organization Review
Background Management Partners
Background
The City of Costa Mesa is located in Orange County, California. The City
encompasses a total of 16 square miles and has an estimated population
of over 117,178 (as of January 2010) according to the State Department of
Finance. The Costa Mesa Police Department is comprised of three
divisions:
• Field Operations
• Support Services
• Technical Services
Currently the department has 143 sworn and 56 non -sworn staff. Fig -Lire 1
shows the current organization chart for the department.
Figni-e 1. Costa Mesa Police Departinent Organizational Chart for FY 2010-11
Professional
Standards Unit
Field
Area iI ( Area 2 l
Commander J I Commander I Special Operations ( field operations
Teams: Teams:
1, 3, 8, 7, 9 and 2, 4, 8, 8, 10
i1 and 42
• Special
040o1
Enforcement
Traffic Bureau
Adminlstratlo
Detall
Traffic
n
• Gangs
W4 unit
• School
n
Animal -
Cunlro€
Resource
:AdmInistrallo
flofors
.' come
officers
Special
Prevention `
• SWAT
Events
. Reserve .
Narcoticslvice
Program.
• Volunteer
Program
Chief of Police
ABLE
Helicopter
Program`
3
Support Services
Technical Services
Detective Bureau
Traffic Bureau
Logistical Support Records Bureau
• CAP
Traffic
Jail
• Property
Crime Scene
Crimes
n
Investigation
:AdmInistrallo
flofors
Property &
Special
Evidence
Events
Training&
Recruiting
*ABLE program is being eliminated 7/1/11
ATTACHMENT 1
Police Departinent Organization Review
6ackgrotuld Management Partners
The City retained Management Partners to conduct a high level
organization review of the Costa Mesa Police Department to identify an
organizational structure that optimizes the department's efficiency and
effectiveness.
ATTACHMENT 1
Police Department Organization Review
Project Approach Management Partners
Project Approach
Management Partners used various analytical techniques in completing
this organization review of the Costa Mesa Police Department. We
examined documents from the City of Costa Mesa and other
municipalities and conducted ten interviews with Police Department
staff. The fallowing sections summarize the doetulnents reviewed and the
interviews.
Document Review
During the course of this review, Management Partners analyzed
numerous City documents related to Police Department operations.
These included:
• Adopted budgets (FY 2009-10 and FY 2010-11)
• Detailed staffing breakdown (e.g., sworn and non -sworn)
• Current organization chart
• Uniform Crime Reports (UCR) for the last three years
• Summary of Police Department calls for service
• Crime clearance rate reports
• List of special enforcement programs
Stakeholder Interviews
Management Partners conducted ten interviews with Police Department
staff. The purpose of the interviews was to collect information about the
strengths and weaknesses of the Costa Mesa Police Department. In
addition, those interviewed were asked about solutions or improvements
that would enhance efficiency while maintaining high levels of customer
service.
Major themes from the interviews are listed below. It is important to note
that these are responses we received from multiple individuals and not
just one person.
5
ATTACHMENT 1
Police Department Organization Review
Project Approach Management Partners
What is worki-ng well in the department?
• Department staff is customer -service oriented and take great pride
in providing outstanding customer service to the community
• Staff cares about the community
• Staff works well together and they have a great work ethic
• The Community Oriented Policing Program works very well
What needs to be improved in the department?
• The department needs a strong leader with a clear vision for the
department
There is no succession plan for the organization
The staff need to be provided training opportunities such as the
FBI National Academy and Command College
The selection of the new chief is critical to the future of the
department
What are the challenges facing the department in the next several
e� ars?
• Recruitment and retention
• Providing the sante level of customer service with a reduced
workforce
Benchmarking
Benclunarking is used to identify where an agency stands in comparison
with similar organizations. It is useful to determine whether an agency is
at the polar ends of a scale or somewhere in the middle and it is
especially useful to identify the reasons that others may be more efficient
in performing the same operation (the "why" behind the "what").
Benchmarking should not be used to create formulas or ratios for
determining budget or staffing allocations.
Five cities were identified for purposes of comparing the police
operations. Budgets, workload data, and other statistics were compared
to Costa Mesa's. Not all of the data were available for all of the cities and
these are noted accordingly. Table 1 shows the populations of the
comparison) cities.
ATTACHMENT 1
Police Department Organization Review
Project Approach Management Partners
Table 1.Bencltmat* Cities' Poufflatiotfs
Costa Mesa
117,178
Fullerton
138,610
---.._._.._
Orange
142,708
Huntington Beach
__ ....� _.�_ �._._...
203,484
Irvine
217,686
Santa Ana
357,754
'Source: California Department of Finance, Janu a ry 2010
The results of the peer city comparisons are provided in subsequent
sections of this report.
ATTACHMENT 1
Police Department Organization Review
Benchniarking Management Partners
Benchmarking
Management Partners conducts surveys of peer agencies in manly of its
studies. There is value in benclunarking the general characteristics of one
organization against another in that such statistics can provide a rough
sense of how the organization compares to peer organizations. However,
care must be taken not to become overconfident that the benchmarking
statistics are indicative of specific problems or support particular
conclusions. There are many limitations to benchmarking surveys, which
inttst be considered before deciding how much weight can be placed into
conclusions drawn from the survey data. These liimitations include:
• Often there are significant differences in service needs and
community expectations for services between different
organizations, especially in police services
• Differences in the interpretation of the survey questions from one
organization to the next
• Differences in how benchmark statistics are understood and
collected from one agency to the next
• Accidental errors or omissions in the data reported
• Even an accurate presentation of benclunark data can support
different conclusions
Management Partners takes great care in conducting benchmarking
surveys; however, in order to use the benchmark data effectively
Management Partners recommends that it be used as a tool along with
the detailed analysis provided in this report to make determinations
regarding changes in staffing and service delivery.
Table 2 shows the FY 2010-11 total Police Department staffing and
budgets for each of the peer agencies in comparison to the City of Costa
Mesa
ATTACHMENT 1
Police Department Organization Review
Benchmarking Management Partners
Table 2.FY 2010-11 Total Police Department Stang and Budget
*Source: California Department of Finance — Inn uarry 2010
Table 2 shows that the Costa Mesa Police Department is the smallest in
size with 143 sworn and 56 non -sworn. In addition, the Costa Mesa
Police Department has an operating budget in FY 2010-11 of $36.8 million,
which is the third smallest operating budget of the peer organizations.
Figure 2 shows the number of sworn officers pea• 1,000 population.
2. Sworn Officers per 1,000 Population
1.40
a.2o
100
0.30
0.60
0.40
0.20
0.00
1.2
Irvine San to Ana lluntirgton rullerton Orangc
Bead'
Figure 2 shows that the City of Costa Mesa has 1.22 sworn officers per
1,000 population while the average of the peer agencies is 1.07. The
service population of the City of Costa Mesa is smaller than any of the
9
................... ............... ...........
Costa Mesa
117*178
$36,847,429
143 00
56 00
199 90 -
Fullerton
138,610
$32,981,190
144.00
67.00
211.00
Orange
142,708
$33,066,920
172.78
104.42
277.20
Huntington Beach
203,484
$59,334,235
210.00
126.00
336.00
Irvine
217,686
$58,223,713
205.00
86.00
291.00
Santa Ana
357,754
$96,264,010
342.00
268.00
610.00
*Source: California Department of Finance — Inn uarry 2010
Table 2 shows that the Costa Mesa Police Department is the smallest in
size with 143 sworn and 56 non -sworn. In addition, the Costa Mesa
Police Department has an operating budget in FY 2010-11 of $36.8 million,
which is the third smallest operating budget of the peer organizations.
Figure 2 shows the number of sworn officers pea• 1,000 population.
2. Sworn Officers per 1,000 Population
1.40
a.2o
100
0.30
0.60
0.40
0.20
0.00
1.2
Irvine San to Ana lluntirgton rullerton Orangc
Bead'
Figure 2 shows that the City of Costa Mesa has 1.22 sworn officers per
1,000 population while the average of the peer agencies is 1.07. The
service population of the City of Costa Mesa is smaller than any of the
9
ATTACHMENT 1
Police Department Organization Review
Benchmarking Management Partners
peer organizations, resulting in the highest ratio of sworn officers to
population.
Figure 3 shows the FY 2010-11 cost per capita for police services for the
City of Costa Mesa and the peer agencies.
re 3. FY 2010-11 Police Services Cost per Capita
S292
Orinp Huntington lroine
B.Ceti
Figure 3 shows the average police services cost per capita of all of the
agencies is $269 which means that Costa Mesa's costs are higher than the
average.
Table 3 shows the total fart I Crimes for 2009 and 2010. Part 1 crimes
include violent crimes and corrunon property crimes. In addition, this
table shows the total calls for service for each agency for 2009 and 2010.
Table 3. Crinie Cowits and Calls for Service for the Peer Agencies
10
11'
i 1
11'
1 1
Costa Mesa
3,625
3,436
102;696
96,441
Fullerton
4,350
4,244
47,831
45,537
Not
Not
Orange
2,785 1
2,719
Reported
Reported
Huntington Beach
4,948
5,122
156,226
153,402
Irvine
3,149
2,826
179,741
185,570
Santa Ana
8,524
8,230
152,869
143,582
10
ATTACHMENT 1
Police Department Organization Review
Benclunarking Mann ement Partners
Table 3 shows that for 2010 the City of Orange had the lowest Part 1
crimes (2,719) while the City of Santa Arta had the highest (8,320). The
City of Costa Mesa had 3,436. In 2010, the City of Fullerton had the
fewest calls for service with a reported 45,537 calls while the City of
Irvine had the most, with a total of 185,570. The City of Costa Mesa had a
total of 96,441 ht 2010.
Figure 4 shows the cost per call for service for each agency as well as the
average cost per call for service.
Figure 4. FY 2010-11 Cost per Call far Service
$800 -- -
i
s7oa $690 _
$600
$5m
$440 %- _$359_ -
5300 -;---- ..... ...-.
5200
5100
i
Coda Mesa
Fullerton HU11 ngton favine 5antaAna Averge
Beach
Figure 4 shows that the City of Irvine's cost per call for service in FY 2010-
11 is $324 and the City of Fullertort's is $690 while the average is $476.
Despite the high ratio of sworn staffing and cost per capita in the City of
Costa Mesa, the cost per call for service is $359 which is well below the
average cost and it is the second lowest cost of the peer agencies.
Figure 5 shows the crines per sworn officer for FY 2010-11 between all of
the agencies.
11
ATTACHMENT 1
Police Department Organization Review
Benchmarking - Management Partners
Figure 5. Crintes per Szoorn Officer
35.00
30.00 ----
25.0£1 --------
20.00
The City of Irvine's crimes per sworn officer is 13.79 while the City of
Fullerton is 29.47. The average of the peer agencies is 21.91. The Costa
Mesa Police Department has a moderate but slightly above average
dumber of crimes per sworn officer than it peers with a rate of 24.03. This
metric is another that requires further analysis. The Costa Mesa Police
Department makes less use of civilian employees for patrol duties than
many modern police departments as discussed below. Assigning some
non -hazardous criminal investigations to civilian staff may reduce costs
and free sworn officer time for crime prevention activities.
Table 4 shows the total calls for service and the per capita calls for service
for 2009.2010.
Table 4. Total Culls for Service and per Capita Calls for Service 2009-2010
12
f
f
f
'
1
• f •
E l f
� �
� i•
r
Cosfa,Mesa
117,178 .'
102,696
96,441 '
0.88=
Fullerton
138,610
47,831
45,537
0.35
0.33
Huntington Beach
203,484
156,226
153,402
0.77
0.75
Irvine
217,686
179,741
185,570
0.83
0.85
Santa Ana
357,754
152,869
143,582
0.43
0.40
12
ATTACHMENT 1
Police Department Organization Review
Benclimarking Mana enient Partners
The level of police service desired or required can be evaluated relative to
the service population, In this metric the City of Costa Mesa is the highest
of the peers with an average over the past two calendar years of 0.85 calls
for service per capita. Irvine is a close second at 0.84 calls for service. This
number can be reduced by limiting the type of calls to which the agency
responds (e.g., non -injury accidents, lost property or even taking some
minor crime reports).
For several decades the FBI has collected statistics on criminal activity in
every law enforcement jurisdiction, called the Uniform Crime Report
(UCR) statistics. The statistics, which describe the most significant crimes
in each law enforcement jurisdiction, are called Part 1 crimes. Part 1
crimes include violent crimes and corrunon property crimes. The average
violent and property crime counts for calendar years 2008 through 2010
are shown In "Tables 5 and 6.
Table 5. Average Violent Critnes fi•aru Utriform Critrte Reports 2008 to 2010
Table 5 shows that the violent crimes per 1,000 population for the City of
Irvine is 0.67 and the City of Santa Ana is 4.62. The City of Costa Mesa
had a rate of violent crime per 1,000 population of 2.55.
Table 6, Average Property Crinies front Uniforrrr Crinre Reports 2008 to -2010
1 -
Costa Mesa
3,294
495
2,521
278
9
28 11
Fullerton
3,929
754
2,815
Costa Mesa
299
1
34
110 .
154..
. ..
2 55
Fullerton
453
2
35
159
256
3.27
Huntington Beach
405
2
32
118
253
2.84
Irvine
136
1
24
50
61
0.67
Orange
177
2
7
75
93
0.81
Santa Ana
1,654
28
77
810
739
4.62
Table 5 shows that the violent crimes per 1,000 population for the City of
Irvine is 0.67 and the City of Santa Ana is 4.62. The City of Costa Mesa
had a rate of violent crime per 1,000 population of 2.55.
Table 6, Average Property Crinies front Uniforrrr Crinre Reports 2008 to -2010
13
Costa Mesa
3,294
495
2,521
278
9
28 11
Fullerton
3,929
754
2,815
361
11
28.35
Huntington Beach
4,524
740
3,485
298
36
31.70
Irvine
2,969
470
2,374
125
25
14.59
Orange
2,739
420
2,037
282
19
12.58
Santa Ana
6,786
1,124
4,234
1,428
1 119
1 18.97
13
ATTACHMENT 1
Police Department Organization Review
Benchmarking Management Partners
Table 6 shows that property crime rate per 1,000 population ranges from
a low of 12.58 for the City of Orange is and a high of 31.70 for the City of
Huntington Beach is 31.70. The City of Costa Mesa had a rate of property
crimes per 1,000 population of 28.11.
Fig -tire 6 shows the Part 1 crines per 1,000 population for both violent
and property crimes for all of the agencies.
Figure 6. Part 1 Crinies per 1,000 Popidation
30.00
25.00
20.00
15.00
10.00
5.00
0.00
--
Costa Mesa Fullerton iiuntin9ton Irvine Orange SaritaAiid
Beach
rA Violent crimes per 1000
13 Property Ulm's per 1000
Displayed graphically hi Figure 6, Costa Mesa has a fairly high rate of
Part I crines relative to its peers. Although its violent crime rate is in the
middle of the range, the property crime rate is high.
Overall, the benchmarking statistics provide important information that
is farther evaluated in the next section of this report. The following is a
surninary of the benchmarking information.
• While the per capita cost of police services is high relative to the
peers, the per call cost is moderate. This may indicate that the
department is not as inefficiently staffed and managed as the high
per capita cost might suggest.
14
ATTACHMENT 1
Police Department Orgaiuzation Review
Benclunarking Management Partners
• The high ratio of calls for service per capita indicates some savings
might be produced by reducing responses to low priority calls for
service.
• The Current workload of the police patrol function is fairly high,
as indicated by the UCR Part I cringe statistics. That workload
could be reduced through a reduction in the types of service calls
accepted by the department. In response to falling revenues
statewide, many police departments have refused to respond to
many types of calls for service that they formerly responded to.
For example, non-criime reports such as lost property reports, non-
injury traffic accidents where there is no criminal violation such as
drunk driving, and even minor crime reports such as minor
vandalisms are no longer assigned.
15
ATTACHMENT 1
Police Department Organization Review
Analysis and Recornrnendations Nianagernent Partners
Analysis and Recommendations
SWAT Team
Management Partners' analysis and recorn mendations are grouped into
the categories listed below,
• SWAT Team
• Use of Sworn compared with Non -Sworn Staff
• K-9 Units
• Animal Control
• Talent Development
• Organizational Staffing Changes
A sUmmary of each area including our analysis and recommendations
follows.
Currently, there are 25 members of the City of Costa Mesa SWAT team,
who provide specialized enforcement pertaining to gangs, parolees and
situations in which special weapons and tactics expertise is needed. Being
a member of the SWAT team is a collateral assignment in the department,
which means that this assignment is in addition to their regular duties in
the department.
SWAT tea -in duties include performing hostage rescues and counter-
terrorism operations, serving high-risk arrest and search warrants,
subduing barricaded suspects and engaging heavily -armed criminals.
SWAT teams are equipped with specialized firearms and equipment.
Their specialized role snakes initial and ongoing training essential. Initial
training usually takes the form of a school or other intensive week (or
more) devoted to learning the nese of specialized weapons and equipment.
Of primary importance is close -quarters defensive tactics training,
Ongoing training is essential for the members of these units given that the
skills needed are perishable and there is potential liability facing cities
from actions taken by police departinents and particularly SWAT Units,
Because SWAT teams are expensive to create and maintain, while the
incidents they respond to are infrequent and unscheduled, finding a
balance between maintaining officer productivity and SWAT capacity is a
16
ATTACHMENT 1
Police Department Organization Review
Analysis and Recommendations Management Partners
challenge. Table 7 shows the number of SWAT team responses for each of
the three cities from calendar year 2007 to 2009.
Table 7. City of Costa Mesa SWATIHostage Negotiation Team Calloids 2006 to 2010
MEN
o e er
005
2006
1
7
2007
1
0
2008
0
0
2009
1
0
2010
0
4
Five- Year Total
3
11
Table 7 shows that from 2006 to 2010 there were a total of three SWAT
team call outs and 11 hostage negotiation team call outs. In FY 2010-2011
$31,000 has been budgeted for SWAT team supplies and equipment.
Each member of the SWAT team in Costa Mesa trains for 160 hours per
year (one day a month and one two-day training each quarter) for a total
of 4,000 training flours per year devoted to team training. This is a
significant investment. The training work equates to over two frill -time
police officers assuming 1,880 hours of actual work time in a year. This
tune Inas value, which could be conservatively estimated at
approximately $150,000 per year based on a total annual compensation
(salary and benefits) level per officer. Multiplying this by two (2) for the
full -tune positions is a total annual savings of $300,000.
One way to maintain a well-trained and effective SWAT team operation
at a reduced cost is by sharing the service with neighboring jurisdictions.
There are many good examples of successful regional SWAT operations
(e.g., North Orange County, California).
The keys to successful implementation of a regional SWAT team are
threefold: carefully select members, establish policies and operational
procedures and provide consistent training. The precise model to be
adopted would be determined collaboratively by the participating
jurisdictions. In a regional SWAT team approach, the assigned members
would serve on the SWAT team in auxiliary roles to their primary duties,
similar to the current operations in the City of Costa Mesa. Each City
could reduce the number of current staff members on their respective
SWAT teams, which would reduce costs for each jurisdiction. Further,
the new configuration will likely result in a larger SWAT team than any
individual agency has today at a reduced cost.
17
ATTACHMENT 1
Police Department Organization Review
Analvsis and Recommendations Manaeement Partners
A regional SWAT team offers several advantages.
• Training: There would be significant savings in time now spent on
training that could be allocated to other police assignments.
• Expanded Workload Capacity. The members of each department
currently on the SWAT team who are not appointed to the
regional SWAT team will be able to return to other duties on a
full-time basis and will not be required to maintain the high level
of SWAT training. Thus, it would free capacity for other
assigmuents.
• Redriced Costs for Stdpplies. The number of weapons, ammunition,
and equipment needed by each police agency would be reduced.
• Shared Expertise. Tactics and expertise would be shared between
agencies.
• Improved Effectiveness at Large Incidents. Major critical incidents that
require large numbers of persoiunel and equipment could be
handled better and more efficiently by a large SWAT team.
Several factors should be considered in forming a regional SWAT team.
• Variation in Tactics. SWAT tactics vary from agency to agency.
Defining one set of tactics to which all departments agree would
be necessary. However, it is noted that many regional SWAT
teams have solved this challenge.
• Differing Coinnntnity Standards. Communities often help define the
methods and tactics used by the local SWAT team. Each
coimntunity is different from and such differences may influence
SWAT approaches. Again, joint standards will have to be
developed to meet this challenge.
The cost savings that can be achieved for each participating agency can be
calculated when the number of agencies willing to participate in this
regional approach is determined along with the size of the regional
SWAT team. Innplementing this regional service sharing approach will
enhance both the efficiency and effectiveness of the current operations.
Recommendation 1. Implement a regional SWAT team
with neighboring jurisdictions.
Use of Sworn Compared with Non -Sworn Staff
Management Partners provided benchmark data showing the ratio of
sworn }nonce officers per 1,000 population. This was the common method
of comparing operations in the past but the method has changed over the
years. The International Association of Chiefs of Police (1ACP) reports
18
ATTACHMENT 1
Police Department Organization Review
Anat sis and Recorninendations Mana enient Parhlers
that, "ratios, such as police officers per thousand population, are totally
inappropriate as a basis for staffing decisions." Rather, they state that
staffing in a police organization should be based primarily on workload
and service quality standards.
The IACP has developed a workload -related recommendation for
determining patrol staffing needs. Industry experience has revealed that
when patrol officers have a significant amount of time available for
officer -initiated activity driven by crime analysis, crime is most likely to
be reduced. Patrol activities are divided into three types:
1. Responding to calls for service dispatched through the E-911
center;
2. Administrative tasks, such as completing reports, roll calls,
sleeting with supervisors, processing arrests etc.; and
I Officer -initiated activity, such as traffic stops, or initiating field
contacts.
The IACP recommends that at a rniniumum one-third of a patrol officer's
time should be available for officer -initiated activity. The IACP research
also found that the time required for administrative duties roughly
parallels time requirements for responding to dispatched calls for service.
Costa Mesa should base its policy for police patrol staffing by adopting
the workload -related policy recommended by the IACP. Management
Partners has developed a staff planning methodology based on the policy
recotrunended by the IACP. That methodology is set forth below.
Patrol staffing must first of all account for time consumed by responding
to calls for service. The Costa Mesa Police Department has provided data
from 2009 and 2010. Patrol units responded to 81,729 calls for service in
2009 and 76,475 in 2010.
According to thnestamps on the call records, the tirne consumed by the
primary patrol units responding to calls for service (from Call Dispatch to
Back in Service) in 2009 was 44,454 hours and in 2010 it was 41,385 hours.
These figures tulderstate the total workload because they do not account
for calls for service requiring two or more officers.
Management Partners estimates that there were 28,483 calls in 2009 and
23,853 calls in 2010 that required at least one additional officer, and we
estimate that an average of 0.5 hours per call were required by the
assisting officers. This is a very conservative estimate of the time
required. Even so, it adds 14,241 hours to the call times in 2009 and
11,926 in 2010. The net result is 58,695 hours were consumed by calls for
service in 2009 and 53,311 in 2010.
19
ATTACHMENT 1
Police Department Organization Review
Analysis and Recommendations Management Partners
After determining the hours required to respond to calls for service, it is
necessary to determine the average number of hours a patrol officer has
available. Based on data supplied by the Police Department, an officer
has an average of 1,788 hours actually available after subtracting time
used for vacation, sick leave, training and all other forms of leave. In
other words, 1,788 actual hours per officer can be used for the three patrol
activities of responding to calls for service, performing administrative
duties, and for officer -initiated activity.
Applying the IACD nninnnuun standard of one-third of the officer's tirne
available for officer -initiated activity equates to 590 hours. This means
that a total of 1,198 hours would be available for responding to calls for
service and performing administrative tasks. As noted previously,
administrative tune requirements roughly parallel time needed to answer
calls for service.
Figure T Costa Mesa Police Depar•ttrrent Patrol Calls for Service Workload for 2009 and 2010
70.0%
60.0%
50.0%
40.0°x6
30.0%
20.0%
10.0%
0,0%
2009 2010
N Patrol Orficers oEily
� Patrol/Special Units
Management Partners calculates that 57 patrol officers available to the
Costa Mesa Police Department in 2009 provided a total of 101,916 hours
of service, and in 2010 the 52 patrol provided 92,976 hours. If these
availability times are compared with the time spent on calls for service as
described above, in 2009 the patrol officers would be occupied by calls for
service 57.6% of their day, and 57.3% in 2010. However, these numbers
provide only the worst case information on patrol workload.
In reality, officers from specialized units and supervisory personnel are
available to assist or even take responsibility for calls for service when not
engaged in their special enforcement activities. Assuming the specialized
20
ATTACHMENT 1
Police Department Organhzation Review
Analysis and Recommendations Management Partners
enforcement units in the patrol section are always available to assist, the
effective patrol force would be increased to 23 more officers in 2009 and
19 in 2010. With their Ori -duty time added to the patrol officers' on -duty
time, 143,040 hours were available in 2009 and 126,948 in 2010. This
would reduce the Call for Service percentages to 41% in 2009 and 42% in
2010. These specialized units do not have the same amount of service
time to commit to calls for service because of their other duties so the
reality is somewhere between the 41% and 59.6% hn 2009, and 42% and
57.3% in 2010. Roughly 50% of a patrol officer's time hn both years seems
Rely although a more detailed study would be required to refine the
estimate.
Regardless, the Costa Mesa Police Department spends a significantly
greater amount of time on calls for service than IACP standard. This
means that the workload is already high in Costa Mesa based upon
current staffing and there is very little time for other activities than
responding to calls. Non -call patrol time is important because officers
can use this valuable time in areas of high crime or those areas identified
as needing additional visibility. Further, the presence of a marked police
vehicle is a known deterrent to those who would commit crh nes.
To meet the IACP standards, the number of patrol officers will have to be
increased to approximately 70 patrol officers, the calls for service
accepted by the agency will have to be reduced, or a combination of the
two strategies applied.
However, given the economic climate, increasing the number of patrol
officers is difficult. Another way to enhance efficiency is by increasing
the use of non -sworn staff. Maintaining the appropriate balance of sworn
and non -sworn staff allows the City to maintain the commitinhent to the
high levels of customer service and cortuntunity-oriented policing.
Figure 8 compares the City of Costa Mesa's FY 2010-11 non -sworn staff to
total full-time equivalents in the department.
21
ATTACHMENT 1
Police Department Organization Review
Analysis and Reconunendations Management Partners
Fi,ttre 8. Costa Masa FY 2010-11 Non -Sworn to Total FTEs
50k% - --
40"/ - ...
35% - -
23`%
30%
25`%
F
20% '
J5`%L.
5%,
0`% - -
costa Mesa Irvine Fullerton IILIIWngto€I Orange 5antaAna Average
Beach
K-9 Units
Figure 8 shows that the City of Costa Mesa has 28% non -sworn staff
compared with sworn staff. The average for the peer agencies is 35%.
Further w-talysis should be done to determine areas where coinnrunity
services officers can be added to the Field Operations Division to assist
patrol staff. This assistance of community services officers will allow the
police officers time to focus on high priority calls and service needs.
Several recommended areas where other non -sworn staff can be utilized
effectively are discussed in. the organizational staffing section below.
Recommendation 2. Increase the ratio of non -sworn to
sworn personnel to reduce expenditures and maintain a
high level of customer service.
The City of Costa Mesa's K-9 unit consists of two K-9 officers. Currently,
the K-9 officers are not part of the regular beat patrol function. Instead
they roan and respond to calls in addition to the patrol staff. A typical
assignment for the K-9 officers in other jurisdictions is that they are
included in the patrol function with a regular beat. In order to determine
if this is feasible Management Partners reviewed the K-9 calls for service
data.
22
Police Department Orgimization Review
Analvsis and Recommendations
ATTACHMENT 1
Partners
The Cost Mesa Police Department provided Management Partners with
the K-9 call for service data for 2010 for the cities of Fullerton, Santa Ana
and Costa Mesa, Table 8 shows the calls for service data for 2010.
Table 8. K-9 Calls for Service Data 2010
Source: Costa Mesa Police Department Data
Table 8 shows that the K-9 calls for service in Costa Mesa are significantly
higher than those of the other two peer agencies. Further analysis is
needed to determine how the K-9 calls were determined in Costa Mesa.
Since the calls for service data is unclear, additional analysis is needed to
determine if this function can be included as part of patrol without
compromising service delivery.
Recommendation 3. Analyze the K-9 calls for service
data to determine if staffing changes can be made to
include these positions as part of a regular patrol beat.
Animal Control
Costa Mesa's animal control operation consists of three animal control
officers. Currently a number of cities in Orange County contract with the
County for animal control services. Further, there many other examples
throughout California of local governments forming joint power
authorities (JPAs) or contracting with counties as a method of providing
animal control services to a community.
Management Partners understands that these conversations are occurring
as a result of the current outsourcing discussions. The City of Costa Mesa
should discuss the desired service levels with both the county and
neighboring communities to determine if cost savings can be achieved.
Recommendation 4. Identify a provider and contract
animal control services.
23
ATTACHMENT 1
Police Department Orgatnization Review
Analysis and Recommendations Management Partners
Talent Development
In recent years, goverrunent and private sector organizations have
recognized an increasing need to ensure a smooth transition for
leadership positions, The practice of planning and preparing for these
transitions is called succession planning.
The meed for succession planning is well documented as both private and
public sector organizations face the approaching baby boomer retirement
wave. As baby boomers reach 55 to 60 years of age, they are leaving the
workforce in record numbers. Compounding the problem is the fact that
there are not as many workers in subsequent generations to take their
place.
Due to fiscal constraints, cities and counties have had to reduce personnel
to live within their means. One cominon strategy over the years has been
to reduce the number of middle management level staff so that direct
service delivery positions are preserved, The result today for many local
government organizations is a lack of "bench strength," (people
developed and groomed to transition into the next level of leadership) at
the upper middle inanagernent level. This is particularly true at the
assistant department director level, where successor department directors
would normally be found.
Recent awareness of the higher pace of retirements and the smaller pool
of people to replace retirees has led jurisdictions to explore new ways of
ensuring they have the talent and skills necessary to provide service in
the future. The traditional approach of filling positions is the "just in
time" method of beginning a recruitment process once someone has
announced his/her retirement. It worked well in the past because there
was a large pool of people interested in working for local government
and enough employees in the twiddle ranks who were interested in
moving into leadership positions. But that is no longer the case.
The new approach is to engage employees several years before they
expect to retire in the process of planning for their succession. This could
prevent significant institutional knowledge from disappearing as larger
numbers of people leave in a compressed period of time, Organizations
are also documenting institutional knowledge where possible, providing
for overlap from the incumbent to the new person in a position, and
mentoring candidates in advance so they will be read to take on higher-
level responsibilities.
24
ATTACHMENT 1
Police Department Organization Review
Analvsis and Recommendations Manaeement Partners
Components of a Succession Planning Program
A successful succession planning program requires support and
con unitment from the very top as it must be an ingrained part of the
organization's human resources efforts with both management and
financial backing. Successful succession planning programs generally
consist of the following steps': program creation, analysis, development,
selection, transition and measure results,
1. Program Creation. The program must be identified as an
organizational priority and given appropriate support, both
managerial and financial. One high-ranking staff member should
be assigned responsibility for the program. In best practice
organizations, technology plays an essential role in the process by
simplifying and streamlining tracking of individual employee
development, performance evaluation, and organizational trends.
2. Analysis, To select the right people to take over, current
management must develop an understanding of what the
organization will need in the next several years and, thus, what
skills the organization's new leadership will need. Organization
needs will change over time and so will the requirements of new
leadership. It is vital to take the time to analyze and determine
beforehand what the organization needs prior to identifying
potential new leadership.
The organization should identify the management positions in
which incumbents are likely to retire within the next one to five
years and develop individual plans to address succession into
those positions. The organization should enlist the assistance of
individuals intending to retire in creating a succession plan for
their jobs.
Succession plans should include elements such as job
expectations, alternatives for organizing the work once the
incumbent retires, identification of people within the organization
who might be candidates for the position, career development and
mentoring plans for those individuals, and an overall strategy for
transitioning from the inctunbent to his/her successor.
I Wles, Stephen A. and Nathan Bennett, "Best Practices in Succession Planning,"
Forbes.coni, November 9, 2007.
25
ATTACHMENT 1
Police Department Organization Review
Analysis and Recommendations Management Partners
3. Development, The organization must develop and train future
leaders for the roles they are likely to assume, providing a variety
of training and mentoring opportunities to those employees
considered candidates for promotion. This step takes financial
support and tithe, usually a window of two to four years before
the candidate is prepared to assume a new leadership role. A
variety of specific development methods are discussed further
below.
4. Selection. As the point of transition approaches, internal
candidates who have completed a program of development
should be prepared. The organization will need to undertake a
typical htunan resources selection process in order to pick the
"best candidate" for each position.
5. Transition. Before the actual first day in the new position, the new
manager should have been introduced to his/her reports and
already be knowledgeable about organization needs, priorities,
and endeavors. Progressive organizations will provide regular
feedback and coaching opportunities to support the new manager
in the initial year.
6. Measure Results. The success of the succession planning program
and its effectiveness should be measured, both through surveys of
participants but also through analysis of turnover numbers and
"bench strength," how many internal candidates were prepared
for, and took on, promotional opportunities within the
organization. In addition to fostering continuous improverment of
the program, measurement suggests to department directors how
important planning for the future is for executive management
and policy makers. If program results are being measured, there is
a much greater likelihood the program will be deemed important.
Currently, the Costa Mesa Police Department does not have a succession
plan. The department currently provides Peace Officer Standards and
Training (POST) training for sworn personnel and there are minimal
opportunities for any additional external training opportunities such as
Command College and the FBI National Academy. To develop the staff
members in the department and prepare them for advancement, training
opportunities need to be provided. The cost of the succession plan and
the training will depend upon the type of trailing program that is
developed.
26
ATTACHMENT 1
Police Department Organization Review
Analysis and Recommendations Management Partners
Organizations have a variety of options for creating a succession planning
program. The key will be to create an executive level conrunitment to the
effort, establish a good work program, staff it, implement programs,
evaluate successes, and retake improvements. The City of Costa Mesa
Police Department is facing a light turnover rate. Implementing a
succession plan and a training program now will provide an opportunity
to prepare the staff for future leadership opportunities in the department.
Recommendation 5. Develop and implement a
succession plan in the Police Department,
Recommendation 6. Implement both an internal and
external training program for the Police Department
staff.
Organizational Staffing Changes
Figure 1 at the beginning of this report shows the current organization
chart of the Costa Mesa Police Department. There are 113 sworn and 56
non -sworn personnel in the three divisions: field operations, support
services and technical services.
Based Upon our knowledge of public safety best practices and our high-
level review of the current staffing in the Costa Mesa Police Department,
we recommend that the department consolidate three divisions into two
divisions. The proposed divisions would be field operations and support
services. Figure 9 is a high-level proposed organization chart that shows
the areas of responsibility for each of the divisions.
27
ATTACHMENT 1
Police Department Organization Review
Anal sis and Recommendations Management Partners
Figure 9. high Level Proposed Organ izatioit Chart for the Costa Mesa Police Departniertt
Professional
Standards Unit
Field Operations
• Patrol
Administration
• K•9 Unit
• Motors
• Special Events
Animal Control
Crime Prevention
. SWAT.
• School Resource
officers
Reserve Program
• Volunteer Program
Chief of Police
Support Services
Detective Bureau
CAP
Jail
• Property Crimes
. Crime Scene
• Special
Investigation
Enforcement
+ Property&
Detall
Evidence
Gangs
. Training &
Recruiting
Records
The proposed staffing changes that Management Partners recommends
are shown on the detailed organization chart shown in Attachment B.
The specific positions that we recommend eliminating and adding to the
department are listed below.
• Eliminate the non -sworn commander position in the Technical
Services Division and include those functions in the Support
Services Division.
• Eliminate the lieutenant in Special Operations and move the
school resource officers and SWAT to the Traffic and Operations
administrative lieutenant.
• Replaced the sworn lieutenant in Logistical Support with a
civilian logistical support manager position.
• Eliminate the police officer position in Training & Recruiting.
• Eliminate the sworn special events sergeant position and replace
this with a non -sworn special events coordinator position.
• Eliminate the lieutenant position in the Traffic Bureau and move
those functions to Traffic and Operations in the Field Operations
Division.
• Eliminate the two vacant officer positions in patrol (Teams 2 and
1a).
28
ATTACHMENT 1
Police Department Organization Review
Analysis and Recommendations Management Partners
This is an elimination of seven sworn positions and one non -sworn
position. This is also includes the addition of two non -sworn positions.
Overall this would reduce the number of sworn personnel by seven and it
would increase the nrnnber of non -sworn personnel by one position.
These staffing changes will result in a total estimated annual cost savings
of $1,138,000 including salaries and benefits.
Management Partners believes that this proposed reorganization plan for
the Police Department preserves the City's corrunitment to corrun a nity-
oriented policing and will allow it to maintain its high level of customer
service while reducing the annual expenditures in the department.
Recommendation 7. Eliminate one commander position,
three lieutenant positions, one sergeant position and
three officer positions,
Recommendation 8. Add one non -sworn logistical
support manager position and one non -sworn special
events coordinator position.
29
Police Department Organization Review
Conclusion
Conclusion
ATTACHMENT 1
Managenjent Partners
The Costa Mesa Police Department staff is committed to excellent service
delivery. Resources are lean, requiring efficiency in their use. As with
other municipalities across the nation, the City of Costa Mesa is facing a
challenging economic period with declining revenues. Economic
downturns require local goverrunents to reevaluate their priorities and
look at new ways of providing quality services to the community.
Through this organizational review of the Police Department we have
been able to identify a new organizational structure which will reduce
expenditures, provide for regional service approaches and preserve the
high level of customer service. Irnplernenting these changes will allow
the City of Costa mesa to more effectively and efficiently provide the
services to the community in the Future.
30
ATTACHMENT 1
Police Department Orgy nization Review
Attachment A: List of Recommendations Management Partners
Attachment A: List of Recommendations
Recommendation 1. Implement a regional SWAT team with neighboring jurisdictions.
Recommendation 2. Increase the ratio of non -sworn to sworn personnel to reduce
expenditures and maintain a high level of customer service.
Recommendation 3. Analyze the K-9 calls for service data to determine if staffing changes
can be made to include these positions as part of a regular patrol beat,
Recommendation 4. Identify a provider and contract animal control services.
Recommendation 5. Develop and implement a succession plan in the Police Department.
Recommendation 6. Implement both an internal and external training program for the
Police Department staff.
Recommendation 7. Eliminate one commander position, three lieutenant positions, one
sergeant position and three officer positions.
Recommendation 8. Add one non -sworn logistical support manager position and one non -
sworn special events coordinator position,
31
3
.v
w
G
N
I
bA
O
M
cu
Q
0
0
0
U
s
U
G
O
H
t4
0
C
t
m
Q
Q)
U
0
a
m
a�
0
0
U
aJ
O
Q
0
L
a
m
44
C
E
X
u
m
ATTACHMENT 1
I
N
c�
ATTACHMENT 2
Costa Mesa Police Departinent
OFFICE MEMORANDUM
To: CEO Tom Hatch
From: Steve Staveley, Chief of Police
Date: April 14, 2011
Subject: Department Reorganization
As per direction, the following information and options are submitted. Based upon
funding provided, and only if required, these are the three basic structures of the
organization that would be used should we be required to firrther downsize. Along
with each is an estimated annual cost of operation based upon the staffing model.
You should expect a fiilly developed budget based on the indicated staffing model,
would be somewhat but not Hugely different, With each option I have provided a
discussion of the necessary service adjustments necessary due to the model. I have
carefully considered this portion in particular and filtered it via my professional
experience as CEO in both public and private service organizations since 1487.
Changes in levels of service delivery and corresponding impact on the customer base
(citizens of and visitors to Costa Mesa) will be significant at each level on an
individual call or response basis, Still on the most basic of law enforcement services
- i.e. eventually showing up or providing an alternative response to a customer
request for service requested will continue to be performing at exemplary levels.
Let me be very clear in regards to the last statement of the forgoing paragraph, I am a
very strong advocate and long time practitioner of what is now called community
oriented or based policing. Anytime an agency as busy as the Costa Mesa Police
Department falls below a certain level of staffing you must expect that it will devolve
into a strictly law enforcement agency. Such an agency may have programs that
provide some of the trappings and services of C.O.P. (Conununity Oriented Policing)
but they will NOT be providing C.O.P. because the culture of the organization will be
driven by response to calls and NOT to C.O.P. and its high levels of preventive
activities and community building. In my judgment even with the highest level of
staffing model presented, C.O.P. is going to be a challenge and at the lowest level,
largely impossible.
Communities are either building or moving forward or they are declining, There is
no standing still, It is true for organizations as well, there is no standing still. CMPD
has been slipping in recent years due to layoffs and internal strife caused by
circumstance of which you are aware and now concluded. Yet C.O.P. as a
philosophy remains strong in the department and while it may have been in
hibernation for awhile among some, it can be rekindled. The homelessness task force
that you have done such good work with in the recent past and the police involvement
in that effort is a clear example.
ATTACHMENT 2
What is the bottom line? If the department falls below a certain level of staffing it
can become impossible to provide the "community building" and "community
developing" level of service and we simply provide great law enforcement. With
adequate staffing of both sworn and non sworn, both are possible and without staffing
at adequate levels it cannot. Adequate for CMPD means about 1.3 Officers per 1000
of population or slightly greater, bort given the daytime population and the nature of
activities in the community, its far flung Mature and the barriers to easy movement,
1.5 would be preferred. Trading officers for some non sworn positions can modify
that ratio a little and still provide both program and philosophy to the community.
You will see those "trades" made in the alternative presented.
A PRIMER ON COMMUNITY ORIENTED POLICING:
What do I mean by philosophy of community policing? A basic way to understand
this concept is to attempt to understand what municipal policing is really for. I
believe the purpose of the municipal policing activity is conununity building, and to
make a conunurtity as attractive to its members and potential members as is possible.
To do that requires a range of municipal services, fresh water, good sewers, great
neighborhoods good schools, mice parks etc. While the police do not provide all of
those services (thankfully), we are responsible to insure schools and parks are seen as
islands of safety and security and that neighbors feel safe and secure in their
conununities - and when there is an issue, or problem, the customer knows how to get
it solved - that is the mission. One way to express it is to create an open connection
from the conununity member to the police and visa versa. I have often described this
connection as a goal or objective. That objective is to create an environment
where every rnernber of the community lurows the first name of someone on the
department and are comfortable enough with that relationship that they can call
them on the phone to help with a problem.... As an aside, the rest of that statement
is ..... and when that relationship does not exist then it is the chief who personally
makes the connection. Agency and conunut-ity size is a factor but Costa Mesa is
well within the size to create this enviromnent.
So where does law enforcement fit in? Law enforcement and our responsibility to the
cause of justice in our society are tools of community building. They are the most
important tools in our tool box, but not the only tools we use for community building.
But like any tool box, removing the tools (options) eventually leaves you with one
tool, in our case a big hammer, - law enforcement.
With this understanding, I provide three options outlined below. Each has an
estimated fiscal statement as well as the service levels that will be eliminated as a
result.
In FY 09110 - The department had 164 Sworn staff and 75 non sworn;
In FY 10111 - The department had 149 Sworn staff and 55 non sworn; (Note council
reduced to 147 after budget was produced but we use 149 here, as that is what the
budget says.)
-2-
ATTACHMENT 2
Today - The department has 139 Sworn staff, of which 5 are on IOD status and one
of those is clearly projected to retire as a result of injury. A second one is likely to
retire from his injury and the others are anticipated to return to work, one of who will
be first to return should do so in a little less than two months.
Functionally then we have 134 staff currently. If ABLE does close up shop, 4 more
staff will return to us raising the functional staff level to 138 and the total staff to 143
in FY 11112 but still well below the authorized and budgeted 149 of FY 10111. That
difference will generate a savings of approximately $700,000 by the end of the fiscal
year FY 10/11, but such estimate does assume no dramatic increase in payoffs (due to
retirements and or persons resigning for other employment) and neither is an
assumption I think that is prudent to make.
I consider the current staff level be minimum staffing to continue with a Community
Policing model and with the heavy use of Problem Oriented Policing to solve
conununity problems.
ALTERNATE ONE FOR FY 11112: SWORN STAFF OF 140 — 145
This is basically where we are currently. Such staffing will result in an annual budget
savings vs. authorized FY 10111 of approximately $700,000.00. The total could have
been greater but adding non sworn — part time staff to pick up the slack in the field is
critical in FY 11112 and currently in the department budget. That budget request
amounts to approximately $300,000 and if granted reduces the approximately
$1,000,000 savings in the difference between 149 sworn and 140 sworn officers, as
well as the reduction of the non sworn commanders position as Commander Ford
transitions to retirement this sununer.
As noted this level of staffing is where we are at this writing, and will allow us to
continue the current level of service. The department will be reorganized into two
divisions, with a police captain heading each. The divisions would be basically,
Field Services and Support and Investigation. Field Services would have a little more
staff but some additional adjustments would be prudent, maybe moving SED and
Gangs to Investigation, and 'Traffic over to Field Service (like functions). Regardless,
the workload is about the same for both. The captain promoted to staff the second
captains position would result in a lieutenants promotion, but no sergeants promotion
and no new hire beyond that authorized of 140. This will help consolidate the ABLE
staff into the department should that program end as planned on July 1. The ABLE
commander will need to remain with the ABLE program for some period to wind
down that program and move to the dissolution of the program and assets. I would
expect that the commander would be paid from the ABLE program reserves during
this period of transition.
ALTERNATE TWO; SWORN STAFF OF 125 —130
If the council does eventually find the CMPD for a lower level — 125 has been
suggested, it is important to see what that means in real terms. Attached is an
-3-
ATTACHMENT 2
organization chart which reflects the 125 - 130 number, This structure will provide 2
captains each heading a division of the department. Thus we will fold what is now
Support Services into Technical Services and retitle the whole as Support Service &
Investigation Division, Traffic and its related functions will move from Support
Services to the Field Operations Division where it more properly belongs — keeping
like firnctions (field and uniform) under the same leadership, just as in alternate one.
This structure and the reduction of officer staffing to 125 saves approximately
$2,240,000 from the current budget of $36,847,429 bringing the total for the police
department down to $34,607,429. It would be necessary however to add
approximately 10 FTE non sworn to allow us to continue to provide a modicum of
outreach in the community and to address the very significant policing issues which
this community yet faces. The net reduction from current budget would then be
$1,648,000 and the new total budget expenditure for PD would be $35,199,429.00
(using FY 10/11 budget numbers), Total employees would decrease by 4 — a
reduction of 14 sworn and the acquisition of 10 FTE in non sworn and in that
difference accrues the savings. This change in staffing would then make the ratio of
sworn to non sworn at about 52%. That ratio is currently 38% which is low for the
industry. The 52% would be closer to optimum. The actual positions to be
reemployed would require additional consideration but basically the majority would
be in field response — Park Rangers, Field Report Takers, and a few support personnel
to insure that we relieve the burden of past cuts upon the field sworn staff. A CSI
staff member, non sworn investigator, as well as a crime prevention person would be
examples. The other 7 would be assigned to the field response and direct delivery of
service in lieu of sworn staff — during peak hours for the delivery of such service and
to focus upon specific problems (i.e. homelessness in Lions park and environs).
This staffing level results in a ratio of sworn officers to population (generally only of
cursory value in determining staffing levels) of 913 citizens per officer. Two
additional factors weigh heavily upon the use of such staffing measurements. The
first is daytime population. Costa Mesa is a center of commerce with its world
renowned South Coast Plaza and the varied business operations throughout the
community. The vast majority of those employees, and customers from each of these
business comes to Costa Mesa daily and adds to our daytime population. SCP has a
visitor population of 26 million per year — 40% during the Oct to Jan "Christmas
Holiday Season", and the other businesses hold a more steady population number in
the daytime calculation. Simple math demonstrates SCP adds about 71,000 persons
to our daily population thus for the sake of this discussion a doubling of population
would not be out of the realm of reality when adding daytime to resident population
when trying to find a number suitable for consideration as to the total service
population.
We know that 5.7 officers are required to fill one beat or position if that position is to
be filled 2417 365, it is pretty easy to see that with staffing levels in the range of 125
that CMPD can cover approximately 7 field positions. Such a level is clearly right at
the absolute minimum for a city this size and complexity. IOD's — shortage of
staffing because of retirements etc. before additional staff is hired and trained will
cause overtime expenditures that will not be controllable. Additionally such staffing
will require operational adjustments such as scheduling and the elimination of the
-4-
ATTACHMENT 2
current directed enforcement program. Directed Erlforcernent (or DE), is a program
of using overlaps to address special community needs — everything from unlicensed
ice cream trucks and graffiti writers as well has bard crime (burglary stakeouts) are
addressed. The key to this program is a focus on those conununity issues that create
a negative community environment and reduce the sense of safety and security and
the quality of life within a conuutrnity — the broken windows theory if you will.
The reduction of 14 sworn positions will result in some increase in response time.
This number of staff represents more than two beats worth of staffing. Thus we can
estimate with sorne clarity that each day, and each shift will have two fewer officers
available to respond to the needs of the community and visitors. The physical size of
the city and its unusual layout dictates that some response times will increase as a
result. Field report takers and other non sworn additions (as proposed) will help but
not replace the most flexible of staff members — sworn officers. I suspect a
significant increase in lower priority calls for service and some degradation in
emergency and urgent responses. It will be necessary for the decision makers to
clearly understand this reality and accept the consequence of such a change.
Additionally, too, small matters that require being addressed which come from the
community via a council person will often not be addressed and resolved as quickly
as such matters are today.
I should add here too that in discussion with Director Kira Brandt, there is a clear
need to also employ a code enforcement officer for motels and medical marijuana
enforcement. Such person would be one of the 10 non sworn noted above and
assigned to the police department staff.
ALTERNATE THREE: BELOW 125 SWORN
This alternative is not recommended and can only be viewed as what it is -- extreme
and while not experimental, does push the envelope of understanding of the way
policing has been done here in Costa Mesa. In this structure additional dependence
will be made upon non sworn personnel and the focus of sworn personnel will be
pushed toward direct service to the community to the maximum level possible. Non
sworn personnel would replace sworn in areas such as training (a savings of $200,000
per year and the reduction of two sworn, a sergeant and officer, and replacing them
with non sworn personnel with specific training and experience in the subject. The
PSU sergeant would give way to a non sworn position and or contractors and
additional savings would accrue expected to be $90,000 aruaually. The logistical
support Lieutenant would be eliminated and replaced with a civilian administrator of
equal rank and pay to the records manager savings of $130,000 annually. Jail sergeant
would be replaced by a jail supervisor (non sworn) savings of $90,000 annually. In
traffic, the special events supervisor and officer would be returned to enforcement
duties (motors) and two nor] sworn supervisors would be employed to handle the
scheduling and development of special events programs. Additionally the savings
accrued therein of approx $390,000 would offset by additional non sworn staffing of
$200,000. Such staffing to work special events and when not doing so work as A and
I investigators. Net savings of $620,000, and in addition to the cost saving of
$1,648,000 noted in alternative two above for a net reduction of $2,268,000.00.
-5-
ATTACHMENT 2
Again, some of the transitions from sworn to non sworn in alternate three can be
applied successfully to the department in out years, there is an organizational cost to
each sworn to non -sworn conversion. Each sworn to non sworn conversion saves
money at the cost of career development of fixture leaders as well as actual
department flexibility.
WHITE SHIRT VOLUNTEERS -- A Transition to Solutions:
In alternate one above, we note that we are doing Community Policing and Problem
Solving as a part of an integral part of our policing model. In alternate two, we note
that if we devolve to a smaller sworn force, we can retain some, maybe much of the
COPPS culture with the reemployment of 10 non sworn staff (FTE). In alternate
three, we continue that model with decreasing effectiveness in the COPPS model
and fiully become a law enforcement agency with maybe a few trappings of COPPS.
There is one additional program which I believe should be cmployed regardless of the
alternative, but its size is determinate of the alternative selected — the development
and deployment of WHITE SHIRT VOLUNTEERS. (I know we can come up with a
better name — and this is only a working title).
CONCEPT: White Shirt Volunteers (to differentiate them from the blue shirt
volunteers who currently perform a number of tasks inside the police facility — 25
positions), will work exclusively in the conunurtity. We will develop under a firll
time sergeant and a full time non sworn employee (at full deployment) three platoons
of field volunteers. One will be deployed to assist within and working for the Area
One Cornniander. The second platoon will be deployed and assist within and
working for the Area Two Commander and the third with traffic and have a global/
citywide traffic and transportation focus. Each platoon will consist of 25 persons who
are residents of Costa Mesa — key bit here — only Costa Mesa residents can becorne
WHITE SHIRT VOLUNTEERS.
DETAILS: Everyone who reads a paper and looks around a community knows there
is a bubble of persons (the Baby Boomers) as well as their senior generation (the
Matures — that is where I am in terms of age), who are retiring and searching for the
next phase of their lives. Some will travel the world, but most will continue to live ill
the house they have had for years and look for things to do that help them transition.
They need activities and they need to contribute. Matures are a little easier to
understand having the Great Depression and World War IIIKorea influence and the
Boomers who have been raised by the Matures and have the Kennedy murders and
Viet Nam influence arrive at the same place, - retirement and they MUST have
something to do which is meaningfid, usefirl, interesting and gives value to their lives.
The department can take advantage of this reality and huge staffing resource by
reernploying the citizen's academy for training and creating the WHITE SHIRT
VOLUNTEERS. A sergeant (already employed) would head the group, be
responsible for training and general supervision as well as performance reports and
finding suitable fiinctions for the WHITE SHIRT VOLUNTEERS. What might be
ATTACHMENT 2
suitable functions? Parking citations is one good example, and the Iowa mess is a
coinmunnity problem for which the WHITE SHIRTS would be an easy answer — not
just writing tickets but helping the Little League folks avoid tickets by nice soft
warnings. They can stay there much of a day and lielp find the solution and the only
cost we have is a little gas. Handicapped citations are another example. Non injury,
non hit and run accident resolution in lieu of sworn officers would be an example, as
well as foot patrol in parks assisting Park Rangers. The biggie would be traffic
control assistance at the Fair, Marathon, and all manner of other functiorns. Traffic
control assisting sworn and non sworn officers at traffic accidents is a good example.
Storing abandoned vehicles is a good example of some duties. A return to vacation
house checks (a free service) is an example of something we could reemploy as a
community building tool. The "Feet to the Fire" event next week would be a great
place to have WHITE SHIRT VOLUNTEERS standing by in the event the skills of a
sworn officer are necessary — while not wasting the economic resources or forcing
good community events to pay for cops. All of these are things the chief can
authorize and a little training makes a suitable function for the WHITE SHIRT
VOLUNTEER.
FISCAL ISSUES: There would be some cost, but not significant when compared to
the anticipated 8 hours of deployment per WHITE SHIRT VOLUNTEER per week or
600 hours a week when fully developed — that is 31200 hours a year of donated time.
Uniforms would be required, some training costs, repainting of old radio cars etc,
would be required, but in the main, the total costs for a year at fiull deployment (75
WHITE SHIRT VOLUNTEERS) would be less than the current cost of one officer --
less benefits. In other words, except for the sergeant already on staff, the non sworn
(anticipated in the alternate two example and costs covered there), we will spend less
than $ 70,000 a year on this program or about $2.25 per hour worked.
If you select Alternate One, Two or Three as the place you want its to be we should
move forward on the development of the WHITE SHIRT VOLUNTEERS, only the
size of the unit and how fast it develops would change. A bit smaller and slower to
develop if we are at Alt one levels and faster and bigger if Alt two or three.
Here is the real sales point for this idea — the COMMUNITY OUTREACH - the
opening of the doors to this overly insular police department will make a huge
difference and short order.
OTHER THINGS TO CONSIDER:
When I was at La Habra, I came up with an idea to form a North County Swat
Team. That combined team, with the hard work of other chiefs and their operations
conunnanders, has become a model of find better service at less cost. SWAT teams
are just like ladder trucks in the fire service. When you need one, nothing else will
do. When you need one, you want one you control to insure it performs to your
standards and not some other agency or community standards. Thus the North
Orange County SWAT was created, It has been very successful. It saved La Habra
nearly $100,000 a year in training costs, salary savings and equipment vs. trying to do
-7-
ATTACHMENT 2
it on their own. From everything I hear, the savings are secondary (but important)
to the duality of the service they provide. The investigation of this option has begun,
with discussions which engage North County Chiefs of Police (North County SWAT)
and West County SWAT via their chiefs, Additionally, I have approached Newport
Beach to engage in discussions about Harbor SWAT (based upon the Harbor Court
District area) using the North County SWAT model.
SUMMARY AND CONCLUSION:
It is clearly possible to reduce the number of sworn officers in the CMPD. I do not
think it prudent to do so as to make such change will adversely impact the delivery of
service the community has corse to expect. It is my judgment that Costa Mesa
receives as high or higher level of service than any larger city in the county and quite
likely southern California. I consider the staffing levels below 140 will result in
degradation in service levels. There is no reason to have focused on 125 sworn as a
goal for the department to achieve. If however, there is a need to reduce the police
department budget by some arnount then we can achieve a savings and protect most
of the functions and service levels by reemploying about 10 non sworn FTEs and
continue to provide many of the firnctions of COP and POP. If there is a need to go
below that number due to fiscal concerns, then the agency will devolve into a
response to calls / law enforcement agency and will do little or no COP/POP and very
little crime prevention beyond simply responding to a call, and arresting the violator
or taking a report. In other words below 140 sworn the complexion of the agency
begins to change and below 125 it changes greatly and in fact devolves into a simple
call and response law enforcement agency. I cannot and do not recommend any
reduction below 140 and hope that someday soon the department can return to the
160 level. If necessary to reduce sworn payroll, then on a one for one basis, a non
sworn FTE should replace the sworn to continue the current high levels of service.
-8-
k
$
)3
X (D
® E2
R
�-
�/
�/
�
) ).
§ }
�L
okj
/J[
§§
/
E
q
/
Q
m
w
Q
k
)3
�
CL
§ }
�L
§ ^®2
k� k� Ak/
/[
ATTACHMENT
k
k�
�C
e�
I
m§
�/
A$f
t�
$7
CL
CL
A
E
§ �
A
Q
4
L
�
ATTACHMENT
�C
e�
�/
A$f
�®
§
§/
CL
A
E
A
Q
4
3
L
�
ATTACHMENT
�C
e�
�/
�®
1
§/
A
A
E
L
�
ATTACHMENT
ATTACHMENT
Fiscal Impacts from Recommended Changes - Police Department
Item
No. Recommendations
FY 11-12 Full Year
Savings Savings Narrative - Program/Service Impacts
Management Partner's Recommendations (Table A)
Eliminate the Police
Administrative Services
7 Commander position (156,386) (208,51
Attachment 3
Eliminate position as of September 30, 2011 thereby creating savings for
9 months.
Eliminate positions as of September 30, 2011 thereby creating savings for
Eliminate two (2) of the eight (8) 9 months. 2 Lieutenant positions will be demoted to Sergeant, 2 Sergeant
8 sworn Lieutenant positions. (240,780) (340,920) positions demoted to Police Officer, eliminate 2 Police Officer positions.
Eliminate one additional
Lieutenant position and add a non -
sworn Logistical Support Manager Eliminate Lieutenant position as of December 31, 2011 and add
9 position. (33,959) (67,918) Logistical Support Manager position at that time.
Eliminate one Sergeant position
and add a non -sworn Special Eliminate Sergeant position as of September 30, 2011 and add Special
10 Events Coordinator position (45,485) (60,647) Events Coordinator position at that time.
Eliminate three (3) Police Officer
11 positions
Subtotal Budget Savings
(326,25(
802,861
Number of sworn positions in FY 11-12 budget
2 Lieutenant/Police Officer positions
1 Lieutenant position
1 Sergeant position
3 Police Officer positions
Total sworn positions from Management Partners
Eliminate positions as of September 30, 2011 thereby creating savings for
(435,000) 9 months.
1,113,000)
IJO
* - does not include Police Helicopter Sergeant (ABLE) position
Page 1 of 3
Attachment 3
Fiscal Impacts from Recommended Changes - Police Department
Item FY 11-12 Full Year
No. Recommendations Savings Savings Narrative - Program/Service Impacts
CEO Additional Recommendations (Table B)
Utilize COPS Grant to authorize Funding from Federal COPS Grant for 5 Police Officer positions. This
an additional 5 Police Officer grant is for 3 years with a requirement that the City fund these positions
1 positions (558,810) (586,760) for 1 year after the grant period.
Reduce the number of sworn
2 positions from 136 to 130
Eliminate six (6) Police Officer Eliminate positions as of September 30, 2011 thereby creating savings for
positions (652,500) (870,000) 9 months.
Add three (3) Community Service
Specialist positions in support of Add positions as of September 30, 2011 in coordination with reduction in
reduction in Police Officer Police Officer positions. As suggested, could be used as non -sworn
positions. 173.752 231.669 School Resource Officers.
Add Volunteer Coordinator Add position as of December 31, 2011 to develop and maintain a
3 position 43,212 86,424 comprehensive volunteer program.
Eliminate Telecommunications
Manager position, reinstate sworn Eliminate position as of September 30, 2011 thereby creating savings for
4 Lieutenant position (130,767) (174,356) 9 months.
Obtain consulting services to study
how Telecommunications and Staff will include an amount for a comprehensive review of the
Police Records can better share operations of telecommunications and records and how they can be better
information, consolidate effort and integrated in their work processes. In addition, the review will determine
5 automate work processes. 30,000 how technology upgrades can further create efficiencies.
Contract for Helicopter support
The Helicopter Sergeant Pilot position is already included in the budget
for the dissolution of ABLE. This amount would be for contract
6 services. 150,000 150,000 helicopter support for other agencies.
Page 2 of 3
Attachment 3
Fiscal Impacts from Recommended Changes - Police Department
Item
No. Recommendations
Add one (1) Community Service
Specialist position for Park
Rangers, one (1) Community
Service Specialist position for PD
Field Operations, one (1) Crime
Scene Specialist for PD Support
7 Services.
Increase allocation for Reserve
FY 11-12 Full Year
Savings Savings Narrative - Program/Service Impacts
Park Rangers help ensure safe parks and additional focus on Lions Park
is needed. Community Service Specialists in Field Operations make the
department more efficient and take field work away from sworn officers.
Crime Scene Specialist will support a need to better manage crime scenes
and evidence. These positions will be effective as of December 31. 2011.
Increase the current allocation of approximately $150,000 to a total of
8 Police Officers by $200,000. 200,000 200,000 $350,000 for Police Reserve Officers to support all Police operations.
Obtain consulting services to study
the long-term technology needs of An expert in this area can work with department staff and the IT Division
10 the Police Department. 40,000 to craft a solid technology strategic plan by January 2012.
Obtain consulting services to study
in greater detail the structure,
operations and the associated
14 revenue of the Traffic Bureau.
Total Budget Reductions (1,357,725) (1,815,526)
Number of sworn positions from above (Management Partners)
6 Police Officer positions
1 Lieutenant position
Total sworn positions from CEO Recommendations
Utilize a consultant to study and review the Traffic Bureau and develop
Page 3 of 3
recommendations.
136
-6
131