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10.a. Consolidated Police ServicesMEMORANDUM TO: CITY COLlNClL FROM: STEVEN N. ANNIBALI, CHIEF OF POLlC SUBJECT: CONSIDERA'rION OF A COST PROPOSAL FOR PROVIDING CONSOLIDATED POLICE SERVICES TO THE ClTY OF GROVER BEACH DATE: MAY 8, 2012 RECOMMENDATION: It is recommended the City Council direct staff to forward the proposed cost proposal and process for providing consolidated police services through an Agreement for Joint Law Enforcement Services to the City of Grover Beach. IMPACT ON FINANCIAL AND PERSONNEL RESOURCES: The proposal will generate a minimum annual increase of $341,200 of revenue to the General Fund. If the proposal is accepted, it is recommended that a new part- time Personnel Assistant position be created, which is estimated to cost $30,000. Therefore, the net annual increase in General Fund revenue would be $31 1,200. An additional $53,766 in revenue would be created to pay a portion of costs for the new police building, which would result in increased revenue remaining in the Local Sales Tax Fund. Lastly, $30,000 would be received annually to amortize the liability cost for leave banks assumed that should be added to the City's reserves. BACKGROUND: On February 22, 201 1, the City Council was provided with a report of options regarding provisions of joint fire and police dispatch services. One of the alternatives provided to Council at that time was a broad overview of the concept of full police consolidation and the potential cost savings that may result if such a concept was implemented. Council directed staff to return with a more detailed analysis of the costs associated with providing police services to the City of Grover Beach. On May 11, 201 1, the City Council was provided with a more detailed cost estimate of providing consolidated police services to the City of Grover Beach. At that time, the City Council directed staff to invite the City of Grover Beach to participate in a joint council meeting to discuss contracting police services from the City of Arroyo Grande. The City of Agenda Item 10.a. Page 1 ClTY COUNCIL CONSIDERATION OF A COST PROPOSAL FOR PROVIDING CONTRACT POLICE SERVICES TO THE ClTY OF GROVER BEACH MAY 8, 2012 PAGE 2 Grover Beach accepted the invitation contingent upon consideration of all consolidation options, but at a later discussion instead requested Arroyo Grande to submit a formal written proposal. ANALYSIS OF ISSUES: Over the past thirty years there has been much discussion and research as to the benefits of full police consolidation in the Five Cities Area. Although past efforts may have had merit, the collective sta,Ffing, budget, and/or community interest were not aligned in order to make the concept a reality. A comprehensive review of the current climate as it relates to police consolidation efforts indicates the following window of opportunity that exists: Both the cities of Grover Beach and Arroyo Grande are facing sizable budget deficits in FY 2012-1 3. PERS rates will be climbing dramatically for safety members. The need to consolidate fire dispatch services is pending. There are a number of potential vacancies in positions due to retirements and potential retirements. The proposed new Arroyo Grande Police Station building will be large enough to provide for a full consolidation of police services. Current Staffinq Comparisons The Arroyo Grande Police Department operates with the following authorized positions: 26 sworn officers (Including management, supervision and line officers) 8 non-sworn civilians (Including. dispatchers, records, property and executive secretary) 1 5 part-time positions (Including dispatchers crossing guards, neighborhood services, cadets and reserve police officers) There are current vacancies and the potential for additional vacancies in the next six months. The Grover Beach Police Department operates with the following authorized positions: 19 sworn officers (Including management, supervision and line officers) 8 non-sworn civilians (Including dispatchers, records, property and secretary) Agenda Item 10.a. Page 2 ClTY COUNCIL CONSIDERATION OF A COST PROPOSAL FOR PROVIDING CONTRACT POLICE SERVICES TO THE ClTY OF GROVER BEACH MAY 8, 2012 PAGE 3 There are two police officer vacancies and a minimum of three potential retirements within the next year. Proposed Conceptual Model In January 201 1, both Chief Annibali and Chief Copsey met and developed a conceptual model for consolidated police services for the service area that would include the cities of Arroyo Grande and Grover Beach. Calls for service, minimum staffing levels, workload analysis, operating budgets and demographics were all taken into account when identifying the ideal proposed conceptual model. The Conceptual Model Police Department has beer1 revised since that initial project and currently is proposed to operate with the following authorized positions: 38 sworn officers (Including management, supervision and line officers) 12 non-sworn civilians (Including dispatchers, records, property and secretary) 16 part-time positions (Including dispatcher, crossing guards, neighbohood sen/ices, cadets and reserve police officers) The current Conceptual Model would result in the combined elimination of seven sworn positions and three non-sworn positions. The non-sworn position reductions include two dispatchers, one records clerk and one secretary. Proposal Hig hliq htslservice LevelsIAssumptions The current proposed Conceptual Model would provide for the following: Five Year Costinn Model: The City proposes a five-year agreement. This will provide for fiscally predictable law enforcement services and a long-term commitment for both parties. It is proposed that the City would commit to the five-year cost proposal. However, the City of Grover Beach would be responsible for increases to PERS costs, pooled liability and workers' compensation insurance cost increases above the base year for number of staff identified, as well as other unforeseen expenses that will be outlined in the proposed agreement. Agreement For Joint Law Enforcement Services: It is proposed the service be provided through an Agreement for Joint Law Enforcement Services. The Agreement will outline the services, terms and conditions. It is proposed to be structured similar to the original joint services agreement for Fire when the Chief and Battalion Chief positions were jointly funded, but this agreement will be much more extensive given the complexity of the shared services provided. Agenda Item 10.a. Page 3 ClTY COUNCIL CONSIDERATION OF A COST PROPOSAL FOR PROVIDING CONTRACT POLICE SERVICES TO THE ClTY OF GROVER BEACH MAY 8, 2012 PAGE 4 Professional, experienced and responsive police management: Provides for administrative management skilled in the delivery and management of consolidated services in like sized communities. The resources of a larger, well equipped and trained Police Department: Provides for the full resources of a department of 38 sworn and 12 full-time civilian personnel with specialized response equipment including 2 traffic motorcycle units; 2 canine units; a new Mobile Field Corr~mand Post; Mobile Emergency Response Vehicle; Tactical Operations Vehicle and state of the art mobile data communications in every patrol vehicle. Increased and stable workforce: Provides for minimum available staffing to either city of 5 to 6+ patrol officers and 5 full-time detectives. Increases policelfire communications to the staffing level goal of nine full-time equivalents (two supervisors and seven full-time and two part-time dispatchers) which would allow forconsolidation of fire dispatch and achieve two dispatchers per shift at most times. Additionally, it includes the sharing of a part-time training coordinator, community relations specialist, high tech crimes specialist, dedicated traffic enforcement and in-house training instructors. Advisory Board: It is recommended that an advisory board be established with representatives of both cities to provide coordination and input on policy issues. This will help address potential concerns over loss of local control. Cost Methodology 'The proposed cost is based on the actual salary and benefit costs for additional staffing necessary to provide the service. Costs are based on top step of the salary range so there will initially be additional savings before employees reach top step. A charge of 30% the cost of command staff (Chief and two commanders) is included. This is based on the calculation that the staffing charged to the City of Grover Beach will account for approximately 30% of the work force in the Department. A 7.5% administrative overhead cost is included to cover payroll, personnel, IT, and other administrative costs. The projected increase in equipment, services and supplies accounts is included. Agenda Item 10.a. Page 4 ClTY COUNCIL CONSIDERATION OF A COST PROPOSAL FOR PROVIDING CONTRACT POLICE SERVICES TO THE ClTY OF GROVER BEACH MAY 8, 2012 PAGE 5 A facility usage fee is charged based on 30% of the cost of leasing a 14,500 square foot building at $1.03 per square foot. The rental cost is based on the current rent received from the old City Hall building. It is proposed to accept current sick leave, vacation and compensation time balances for Grover Beach employees hired. However, this results in a potential liability of up to $450,000. It is proposed to amortize this liability cost over a 15-year period by charging an annual fee of $30,000 for a 15-year period. The rate that the funds would be accumulated should be sufficient to address any cash out of leave on an ongoing basis. With consolidation of dispatch services, it is also proposed to establish a charge to the Five Cities Fire Authority, which is recommended to be based on the percentage of calls for fire response. The percentage is applied to the dispatch staffing costs. The cost proposal then includes a credit to Grover Beach from the revenue based on the percentage of dispatch costs they would be paying. Costs include provision of the animal services contract, narcotics and bomb task force contributions. The full cost of three leased patrol vehicles and one detective vehicle are incorporated in the plan. There is a 2% increase assumption in year three and a 3% increase assumption planned into years four and five. Initial one time start up costs would be approximately $173,612. These costs are based on processing and testing incoming employees, equipping all officers and vehicles and information technology hardware and software. Start up costs could be recovered from the sale of Grover Beach Police Department assets, COPS funding or other consolidated savings. Agenda Item 10.a. Page 5 ClTY COUNCIL CONSIDERATION OF A COST PROPOSAL FOR PROVIDING CONTRACT POLICE SERVICES TO THE ClTY OF GROVER BEACH MAY 8, 2012 PAGE 6 Summarv of Cost Proposal The following is a summary of the cost proposal: Personnel: 12 Police Officers 1 Support Services Supervisor 3 Support Services Technicians (SST) 1 Part-Time Support Services Technician 30% Direct Cost for Command Staff 7.5% Administrative Overhead Animal Control Narcotics 1 Bomb Task Forces Liability Insurance Equipment, Services and Supplies Facility Fee Amortization of Leave Liability Five Cities Fire Authority Revenue Total The following is a summary of the five-year cost proposal: Contract Proposal Costs Year 3 Year 4 Year 5 Year 1 Year 2 2% increase 3% increase 3% increase Line Item Account Salaries and Benefits $2,457,606 $2,457,606 $2,506,758 $2,581,961 $2,659,420 Supplies and Services $373,118 $373,118 $380,580 $391,998 $403,758 Other (net) (61,804) (61,804) (63,640) (64,558) (67,395) Total $2,768,920 $2,768,920 $2,887,339 $2,973,959 $3,063,177 A detailed cost proposal is attached. Based on staffs analysis, this will result in comparable savings to the City of Grover Beach. It is estimated that their savings will be significantly less when compared to their projected budget with budget savings from additional cuts and concessions anticipated for FY 2012-1 3, but still remains well above $100,000. The same would be true for the City of Arroyo Grande savings if likely decreases that will be necessary if the consolidation proposal is not successf~~l were factored in. Therefore, projected savings are relatively consistent between the two cities when compared to base budgets. Agenda Item 10.a. Page 6 ClTY COUNCIL CONSIDERATION OF A COST PROPOSAL FOR PROVIDING CONTRACT POLICE SERVICES TO THE ClTY OF GROVER BEACH MAY 8, 2012 PAGE 7 It is staffs understanding that the City of Grover Beach is considering additional staffing reductions, which would further reduce or eliminate projected savings if compared to the reduced cost. In that case, it would become a policy decision whether to achieve budget savings through a reduction of public safety staffing in both agencies or to enhance service levels by combining forces. Five Cities Fire Authority Joint Dispatch Proposal The Arroyo Grande Police Department currently dispatches fire calls for Arroyo Grande. The Grover Beach Police Department dispatches fire calls for Grover Beach and Oceano. This has been identified as a significant issue preventing the Fire Authority from realizing some of the full benefits of consolidation. As a result, one of the most significant benefactors of the consolidation proposal will be the Five Cities Fire Authority due to enhanced dispatch services. It is recommended that a charge to the Five Cities Fire Authority be developed. The proposed charge is based on the percentage of total calls that are for fire response applied to the total dispatch staffing cost. This equals 18% of the total cost of $1 ,I 08,741, which is $199,573. It is then recommended that the City of Grover Beach be reimbursed for their share of this revenue based upon the percentage of dispatch staff that they will pay for, which is 46%. This reimbursement is included in the cost proposal. The Fire Authority fee will also increase for each agency by the percentage share that each city pays for fire services. Therefore, the net effect for Arroyo Grande and Grover Beach is as follows: Arroyo Grande Fire Authority dispatch revenue (54%) $1 07,769 Arroyo Grande increased Fire Authority cost (45%) $89,808 Arroyo Grande net effect of Fire Authority dispatch charge $17,961 Grover Beach Fire Authority dispatch revenue (46%) $91,804 Grover Beach increased Fire Authority cost (35%) $69,851 Grover Beach net effect of Fire Authority dispatch charge $21,953 Start Up Costs In order to ensure the success of the consolidation and avoid disparate equipment, it is essential that integrating members receive the same equipment and materials that are currently issued in the Arroyo Grande Police Department. It is anticipated that the recovery of start up costs could be obtained by the City of Grover Beach through the sale of police department assets (i.e. vehicles, equipment, furnishings, etc.) and the potential use of COPS funds. Agenda Item 10.a. Page 7 ClTY COUNCIL CONSIDERATION OF A COST PROPOSAL FOR PROVIDING CONTRACT POLICE SERVICES TO THE ClTY OF GROVER BEACH MAY 8, 2012 PAGE 8 The proposed Conceptual Model start-up costs are estimated to be as follows: Testing and evaluations on thirteen officers and six SST $23,850 Fully outfit fourteen sworn officer per AGPD standards $59,800 Equipment and installation on three patrol vehicles $30,000 Equipment and installation on one unmarked vehicle $4,000 Additional IT hardware including three Mobile Data $47,960 Computers, server upgrades, software, data migration cost $8,000 Total estimated start up costs $173,612 Hiring of Grover Beach Staff The following terms and conditions are proposed with regard to hiring existing staff from the City of Grover Beach: No layoffs of sworn staff would be necessary. It would be necessary for the City of Grover Beach to offer the CalPERS Golden Handshake program to their Police Chief. All staff hired would be required to pass a physical exam, psychological exam and a background investigation as required for any new hire employee. Grover Beach Sergeants would be offered Senior Officer positions, which will result in a net increase in their salary and benefits. One Lieutenant would be offered an Administrative Sergeant position and his salary would be Y-rated to avoid any reduction in pay. Staff would be placed in the next highest pay step when compared to their current salary. Leave balances would be transferred and an annual fee would be charged in the agreement in order to amortize the cost of this liability over a 15-year period. The City of Arroyo Grande would provide the CalPERS Golden Handshake program to dispatchers. One employee is anticipated to participate. Positions would not be available for one City of Grover Beach dispatcher, one records clerk and the existing Chiefs Secretary. Dispatchers and/or the records clerk could fill two part-time dispatcher positions. Agenda Item 10.a. Page 8 ClTY COUNCIL CONSIDERATION OF A COST PROPOSAL FOR PROVIDING CONTRACT POLICE SERVICES TO THE ClTY OF GROVER BEACH MAY 8, 2012 PAGE 9 Labor Unions A number of meetings have been held with representatives from both the Arroyo Grande and Grover Beach police officers' associations. The Arroyo Grande Police Officers Association has indicated they support the proposal as outlined. The Grover Beach Police Officers' Association has not yet taken a position. Facility This recommended proposal is contingent upon the approval of Measure A-12. If the measure fails, the terms of the agreement would need to be reconsidered. Process It is recommended the City Council authorize staff to submit the proposal to the City of Grover Beach. It is anticipated that it would be presented to and considered by the Grover Beach City Council. If they chose to proceed, it is then recommended they identify any issues of concern and a joint committee be established to address remaining items, which would consist of the police chiefs, city managers, and two representatives from each city council. If agreement on all issues is reached, staff would then draft the final agreement for consideration by each city council. One of the issues of greatest concern regarding consolidation is often how to maintain identity of both agencies. As a result, it is recommended that recommendations regarding identification of the Department and equipment be developed by the joint committee. ALTERNATIVES: The following alternatives are provided for the Council's consideration: Recommended Alternative: It is recommended that the City Council direct staff to submit a formal proposal to the City of Grover Beach for contract police services provided by the City of Arroyo Grande; Direct staff to modify the terms and submit to the City of Grover Beach; Direct staff to instead develop a proposal for joint dispatch services as a first step and reconsider full police consolidation in the future; Direct staff to take no further action at this time regarding police consolidation; Provide direction to staff. ADVANTAGES: The consolidation of police services with the City of Grover Beach would provide for economy of scale, operational efficiencies and increased service levels for both cities. Additionally, a reduction in the duplication of like services and significant cost efficiency benefits would be realized. This will provide increased revenue that can be instrumental in addressing the projected budget shortfall. Agenda Item 10.a. Page 9 ClTY COUNCIL CONSIDERATION OF A COST PROPOSAL FOR PROVIDING CONTRACT POLICE SERVICES TO THE ClTY OF GROVER BEACH MAY 8, 2012 PAGE 10 DISADVANTAGES: Consolidation efforts may present concerns on the part of Grover Beach regarding local control and identity, but staff believes there are ways to address these concerns. The Grover Beach City Council and Police Officers' Association will also likely have concerns regarding the probable need for layoffs of positions that would not be hired by the City of Arroyo Grande. ENVIRONMENTAL REVIEW: No environmental review is required for this item. PUBLIC NOTIFICA'TION AND COMMENTS: The agenda was posted in front of City Hall on Thursday, May 3, 2012 and public notice posted on the City's website on Friday, May 4,2012. No public input has been received to date. Attachments: 1. Cost Proposal 2. Organization Chart Agenda Item 10.a. Page 10 Attachment 1 Line ltem Llne ltem Account Salaries and Benefits Supparl Service Supv (1) I Techs (3)l Part-bme (1) Police Omcers (13) Overtime (5% of Salaries) Wohers Compensation VacaUon Buyback Sick leave Buyback ShiR Differential (8 posiUons x 12 hours per day 9.50) 30% Direcl Cost 7 5% lndired AdminislraUve Overhead Direcl and indired costs Supplies and Services Ofnce Expenses Poslage Special DeparLmenl Supplies Safely Equiprnenl I Clolhing Conlraclual Services Preemployment Physicals Job Reuuibnenl Expense Animal Conlml Semces Canine Pmgram Semces - Mandated Forensic Task Form Sem'ces Uve Scan Fingerprinting Expenses Telecammunication TraveUConferencesTTra~ning TuiUon Reimbursement Memberships 8 Subscriptions Public Relations Rent - Buildings and Land Liability Insurance - JPA Mainlenance of Vehicles Maintenance of OBce Equipment Maintenance I Repair of Machinery and Equipment Maintenance of Buildings Maintenance of Gmunds Maintenance of Communications Maintenance of Automated Sem'ces Gas and Oil Debt Service Lease Purchase payments Data Pmcessing Equiprnenl Subtotal Liability for Leave Banks Revenue from FCFA for dispatch sewices Final Total Contract Proposal Costs Law Enforcement and Public Safety Communications Center May 8,2012 201212013 Start up Sub Totals Budget Costs Comments Shared cost of management personnel indirect wst of uly services such as HR. Finance. P~yroli and IT $59.800 13 Police Ofncers x 94.600 $23.850 13 Police Omcer evals and 5 Supparl Service Employees evals x $1.325 Venzon Bmadband and T-1 P-lop line added (8528) Based on 30% of wsl for 14500 sqfl building @ 1.03 per sql7 $346300 3 new Dodge Chargers and 1 new Dodge Avenger 85.962 3 new Dala 91 1 MDCIMDVs. 8.000 dala upgrade 873.1 18 873.1 18 $2,830,724 $173.61 2 30.000 (91.804) $2,708,920 Ag e n d a I t e m 1 0 . a . Pa g e 1 1 Arroyo Grande I Grover Beach Consolidated Police Conceptual Model (Revised May 3,2012) (1) Secretary h Patrol Services Commander 4 Support Services Commander I Sergeant (1) School Resource Ofcr Sergeant Investigations Igeant I (1) Neighborhood Services Tech I (4) Ofcr (2) K-9 0 fcrs (2) Support Svcs Supervisors (1) Sr. Ofcr (4) Ofcr H (1) Training I Permits (Part-time) I (7) support Svcs Tech (Dispatchers) Squad 3 Squad 4 Sergeant Sergeant (2) Reserve Ofcrs (1 ) Property I Evidence Support Svcs (2) Motor Ofcrs (1) Reserve Detective High Tech Crimes (~art-time) n (1) Sr. Ofcr (1) Sr. Ofcr 1 (4) Ofcr 1 1 (4) Ofcr I (2) support Svcs Tech (Dispatchers) (~art-time) Guards The pro~osed conceptual model is as follows: 1 Chief of Police 1 Secretary 2 Commanders 6 Sergeants 5 Senior Officers 24 Police Officers 2 Dispatch1 Records Support Svcs Supervisors 7 Support Svcs Tech (Dispatchers) 1 Records Support Svcs Tech 1 PropertylEvidence Support Svcs Tech 2 Support Svcs Tech (Dispatchers) (Part-time) 1 Reserve Detective - High Tech (Part-time) 1 TraininglPermits (Part-time) 1 Community Relations (Part-time) 1 Neighborhood Svcs Tech 2 Cadets 6 Crossing Guards (1) Records Support Svcs I Tlch 1 (2) Cadets (Part-time) I I Ag e n d a I t e m 1 0 . a . Pa g e 1 2