HomeMy WebLinkAboutAgenda Statement 1986/09/02 Item 9 COUNCIL AGENDA STATEMENT
Item 9
Meeting Date 9/2/86
ITEM TITLE: Resolution fa 7e 3 Appropriating funds and authorizing
expenditures for additional staff and equipment for the Police
Department
SUBMITTED BY: Director of Public Safety/01P',
Deputy City Manager Thomson d
REVIEWED BY: City Manage (4/5ths Vote: Yes X No )
The City Manager's budget commentary for the FY 1986-87 Police budget
highlighted the fact that recent call for service levels were considerably
higher than had been forecasted on the basis of population growth and the
Montgomery annexation. At that time, staff did not know whether this higher
workload represented a break with long-standing historical trends or whether
the increase basically reflected "normal " monthly variations. In the budget
commentary prepared in April , it was noted that: "staff will be closely
monitoring the overall trends in service call demand. If the overall workload
continues to grow at current rates, a mid-year supplemental appropriation for
additional patrol staff may be required."
Later, during the June budget workshops, staff indicated that a mid-year
supplemental appropriation for additional patrol staff would definitely be
required if the workload data continued at the higher rates then being
experienced. At the June 5, 1986 budget workshop, Council instructed staff to
report back to the Council on the workload trends and the staffing needs of
the Patrol Section not later than the end of September. Subsequently, on June
17, 1986, Council budgeted an additional $250,000 for possible increases in
Police staffing, pending the completion of staff's review. That review has
been completed and is the subject of this report.
The review has found that the initial increases in call for service workload
have held up over time and that substantial staffing and equipment increases
are needed in the Police Department's Patrol Section to effectively handle
this workload. Specifically, it is recommended that 14 Peace Officers, 2
Community Service Officers and 2 Communications Operators be added to the
Patrol Section's budget for FY 86-87, along with the necessary support
equipment. In reading this report it is important to emphasize the following
three points:
-- the recommended staffing increases will enable the Department to
return to the level of service provided 12-18 months ago, at the time
the Policy Analysis and Program Evaluation Unit (PAPE) completed its
Management Review of the Police and Fire Department;
-- the Department intends to undertake new crime prevention initiatives
in the near future, including activities to improve the City 's
Neighborhood Watch Program. These activities will be aimed at
reducing the City' s crime rate. The success of these initiatives may
change the mix of patrol activities but are not expected to
substantially change overall workload. In fact, these programs may
add to patrol workload in the short term; and
Page 2, Item 9
Meeting Date 9/2/86
-- it is staff's intent to assess the impact of the workload increase on
the Department's Investigative Section, Animal Shelter and
Clerical/Support Operations as part of the FY 87-88 budget process.
RECOMMENDATION: That Council adopt the resolution:
1 . Authorizing expenditure of the $250,000 which was budgeted for Police
staffing contingencies;
2. Appropriating and authorizing expenditure of an additional $494,890
from the unappropriated balance of the General Fund for additional
staff and equipment, including $187,240 allocatable to Montgomery and
$307,650 allocatable to the pre-annexation City.
BOARDS/COMMISSIONS RECOMMENDATION: Not applicable.
DISCUSSION:
1 . The City's Call for Service Volume Is 17% Higher Than Expected.
The Police Department's workload remained relatively stable over the four
fiscal years 1981/82 - 1984/85. In FY 1985/86, however, this historical
growth pattern changed. Call volume for the year was 17% higher than
would have been projected on the basis of population growth and the
Montgomery annexation. The chart in Exhibit 1 depicts the annual call for
service volume over the last five fiscal years. For 1985/86, the
Montgomery workload is identified separately.
In reviewing the chart, it is important to note that:
-- prior to FY 85-86, call volume changed by an average of only 1% per
year and the maximum increase in any single year was 2.5%;
-- during January, 1986 call volume exceeded the estimated peak workload
levels in prior years. It was at this time that staff became attuned
to the workload increase;
-- the department assumed responsibility for all police services in
Montgomery in April 1986. For the first three months of service, the
Montgomery workload has also shown the same 17% increase in volume
(above original projections) experienced throughout the City; and
-- in the first month of FY 86-87, the workload increase has levelled
off.
The increase in call volume has, in turn, had a significant impact on all
phases of patrol operations. Among these impacts are:
-- the time available for "free" patrol has decreased from 30% in
FY 84-85 to 22% in FY 85-86, dropping as low as 13% on some high
workload shifts. To be able to effectively respond to emergency
situations, the department seeks to maintain an average of 30% "free"
patrol time;
Page 3, Item 9
Meeting Date 9/2/86
-- the time available for officer initiated activities, such as traffic
enforcement, has decreased;
-- the response times to non-routine calls for service has increased.
Because present classification codes do not break down call
priorities by specific call types, a more specific comparison of
response times cannot be made. It should be noted that Police staff
are presently developing a more detailed system for coding call
priorities, which will significantly enhance the Department' s ability
to manage the call workload. This new system is scheduled to be
implemented by November 1986, as part of a general upgrade in the
Communication Center's system.
-- the response time of backup units to potentially hazardous calls has
increased, as workload patterns frequently necessitate dispatching
cover units from more distant patrol beats. In these situations, the
primary patrol unit must wait proximate to the incident scene until
the needed backup unit(s) arrive, thereby delaying the time in which
effective police action takes place;
-- the elapsed time for answering incoming citizen calls and for
dispatching calls to the field has increased during periods of higher
call volume; and
-- the Field Sergeant and Patrol Agent have had to assume an increasing
responsibility for call for service related activities, reducing the
available time for general supervision and assistance to junior
officers.
Paralleling the increase in call volume has been an increase in the City's
crime rate. Based upon preliminary crime statistics from SANDAG, these
increases have been generally occurring throughout the region. Within
Chula Vista, particularly high rates of increase have occurred in the
aggravated assault and residential burglary categories.
While the exact causes for the increases in crime rates are unknown, the
most prominent reasons given by criminal justice experts concern:
-- the lack of adequate jail space to house persons convicted of crimes;
-- the increasing flow of illegal aliens into San Diego County; and
-- the increase in drug related crimes.
It is important to emphasize that crimes such as residential burglary are
most susceptible to deterrence through vigorous crime analysis and
neighborhood watch programs. Staff will be reporting back to Council on
ways to improve the City's Neighborhood Watch Program by December, 1986.
Also, as noted in the FY86/87 budget, the Department is intending to
pursue a grant from the State Office of Criminal Justice Planning to
/">% `
Page 4, Item 9
Meeting Date 9/2/86
develop a crime analysis capability. If this grant is not forthcoming,
staff will recommend ways in which this capability can be developed
internally. As noted in the introductory section, these and related crime
prevention activities, while aimed at reducing the City's crime rate, are
not expected to substantially change overall patrol workload.
2. The Police Department Undertakes a Variety of Activities to Increase the
Productive Use of Patrol Staff.
A number of special programs and activities are being undertaken to
increase the effectiveness and efficiency of patrol staff and to improve
police services overall . Included among these are:
-- establishing a Crime Suppression Unit (CSU) in August 1985. Through
its first year of operation, the CSU has initiated investigations on
495 citizen complaints, conducted 70 narcotic raids, made 208 felony
arrests and 352 misdemeanor arrests, recovered stolen property valued
at $97,450 and seized assets worth $30,700. In the FY 86-87 budget,
Council authorized permanent staffing for this unit. Also in the
FY 86-87 budget, Council authorized the addition of a Police Agent to
work with the County's Narcotics Task Force. This position will
significantly enhance the City's present drug enforcement efforts;
-- developing a new work schedule for the Patrol Section. This new
schedule will significantly increase the shift overlap period on
Friday and Saturday nights, facilitating the Department's ability to
handle peak workload volumes;
-- initiating short term special enforcement programs, focusing on
crimes such as prostitution;
-- developing a more comprehensive call for service management system to
insure that more efficient responses are used to handle lower
priority calls. Currently, 6.8% of all service calls are handled by
taking a phone report or by sending mail-in forms to citizens for
reporting minor property crimes such as bicycle thefts. Community
Service Officers (CSOs) and Reserve Officers are used to respond to
10.5% of all calls, freeing up Peace Officers for higher priority
crime control activities. The Department expects to further increase
the use of CSOs in FY 86-87; and
-- improving police services in the recently annexed area by providing
new services (e.g. parking enforcement, impounding of abandoned
vehicles, and neighborhood watch) and improving the level of
preexisting services (e.g. traffic enforcement and business security
checks).
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Meeting Date 9/2/86
As discussed in the previous section of this report, the Department also
plans to develop a more sophisticated crime analysis capability during the
current fiscal year and to enhance the operation of the Neighborhood Watch
Program. Additionally, as detailed in the following section, the
Department plans to utilize patrol staff in new assignments to improve
call response times and to facilitate special enforcement efforts.
3. Twelve (12) Additional Peace Officers and Two (2) Additional Community
Service Officers are Needed to Handle the Workload Increase.
In its Management Review of the Police and Fire Department, the Policy
Analysis and Program Evaluation Unit (PAPE) developed a staffing model to
assess Patrol Division staffing. This model evaluates the staffing needs
for beat patrol by determining the time required for activities such as
responding to community calls for service and engaging in proactive crime
control . Exhibit 2 provides a workload analysis for FY 86-87, based upon
the recent call for service data. Important points to note about the
analysis are:
-- current methods of compiling call for service data do not allow staff
to directly estimate workload parameters. Instead, these parameters
must be derived by a time consuming sampling of raw data. This
analysis was based on a 3 week sample for the period April-June
1986. It should be noted that changes are planned in the
department's information system which will enable staff to monitor
workload statistics on an on-going basis in the future.
-- the projected call for service workload includes only those service
calls expected to be handled by Peace Officers assigned to patrol
beats. Calls for service handled without dispatching a patrol unit
or by dispatching a non-beat unit, such as a Community Service
Officer (CSO) , Traffic Enforcement Officer or Animal Control Officer
are excluded from the workload. Approximately 79% of the police call
for service workload is handled by beat officers.
-- the hours required for backup from beat officers increased by 40.6%.
This change reflects increases in the crime rate as well as a
decision to free-up additional time for the Field Sergeant and Police
Agent to supervise beat units by diverting some of their present
backup workload.
-- report time related to calls for service has increased by 40.5%.
This increase reflects increases in the call rate as well as changes
in the state mandated reporting requirements for domestic violence
and missing juvenile cases.
-- the projected beat officer hours needed for handling calls for
service and reports already exclude most of the workload presently
handled by CSOs. Two additional workload adjustments are required.
The first adjusts for current CSO work which was not reflected in the
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Page 6, Item 9
Meeting Date 9/2/86
sampled weeks. The second adjustment is for two additional Community
Service Officers (CSOs) which the Department proposes to add to
handle part of the workload increase. CSOs are assigned to lower
priority service calls and, on a per-officer basis, handle a larger
percentage of routine reports. CSO workloads will be monitored and
work schedules adjusted to assure maximum utilization of this
resource.
-- research studies indicate that roughly one-half of an officer's field
time should be devoted to call for service related activities and
one-half to proactive patrol and self-initiated activities such as
traffic stops, field interrogations and security checks. This time
allocation provides the needed flexibility for beat units to quickly
respond to emergency situations. The workload analysis provides for
achieving this ratio, which was in effect 12-18 months ago.
-- work schedules are being redesigned to increase the shift overlap
occurring during peak workload periods. This more efficient
allocation of staff will enable the department to achieve service
level objectives with fewer staff than would otherwise be required.
-- four peace officers serve as canine units, primarily responding to
potentially hazardous situations; four peace officers serve as
motorcycle officers, functioning as a special traffic enforcement
unit. In assessing the workload for beat patrol , the call for
service and backup activities of these units were excluded;
similarly, these units were not counted in determining the number of
peace officers available for beat patrol .
The analysis shown in Exhibit 2 indicates that 12 additional peace
officers and 2 additional Community Service Officers are needed to
adequately handle the higher call for service, reporting and backup
workloads projected for FY 86/87. At the recommended staffing level ,
approximately 31% of an officer's field time would be available for
preventive patrol , 16% for officer initiated activities, 28% for handling
calls for service and backup and 25% for "administrative" tasks such as
reports, transporting prisoners, and meal breaks. As noted in the
introductory section, the increase in staff will enable the Department to
meet the patrol service levels provided 12-18 months ago. These service
levels were reviewed in PAPE's Management Review of the Police and Fire
Department and were approved by the Council at that time.
The prorated FY 86/87 cost for adding these staff would be $451 ,650 (9
months) ; the recurring annual cost would be approximately $581 ,650. (All
cost figures are based on FY 86/87 salary and benefit rates. ) It is
planned that the majority of new Peace Officers will be lateral transfers
and can begin their 6-10 week field training by October 1 , 1986.
As was recommended in the PAPE Management Review of the Police and Fire
Department, the additional patrol staff would be allocated to squads on
the basis of workload. The PAPE report noted: " as patrol staff are
added, this staff should be assigned to the swing shift until allocation
of patrol staff is more proportional to the workload. "
Page 7, Item 9
Meeting Date 9/2/86
The table in Exhibit 3 shows the proposed squad staffing levels.
Ir.mportant points to note about the table are:
-- Nine of the additional 12 officers would be assigned to the two swing
shift squads. These squads will be on duty from 2:00 pm-midnight on
Sunday through Thursday and from 4:00 pm-2:00 am on Friday and
Saturday. The two additional CSOs would also be assigned to these
heavy workload shifts.
-- Two of the additional Peace Officers would be assigned to the day
shift squad and one additional officer would be assigned to a
graveyard shift.
It is planned to utilize the additional Peace Officers in new ways to
increase the overall effectiveness of a shift. Exhibit 4 shows the
possible assignments for officers on a typical swing shift. Important
points to note about the map are:
-- while 16 beat officers are assigned to the swing shift, an average
workforce of 13-14 officers would be expected, based on anticipated
absence rates for vacation, sick leave, training, injury time off and
light duty assignments. The beat allocation plan shows how 13 beat
officers would be assigned. At times, however, 14-16 officers will
be available. The planned allocation of these personnel is also
discussed below.
-- nine patrol beats are shown (numbers 22-29 and 32) , representing the
minimum number of patrol beats for the shift. Currently, a minimum
of eight patrol beats are staffed on a typical swing shift. The
primary responsibility of the units assigned to a patrol beat is to
respond to calls for service.
-- four sector beats are shown (S1 -S4) , each corresponding to 2-3 patrol
beats. At current staffing levels, the department does not maintain
any sector beats. The primary responsibility of units assigned to
sector beats is to provide backup for calls occurring within the
sector. Currently, call backup is provided by other officers
staffing patrol beats. This means that a single service call
requiring backup can tie up two or more patrol beats. Utilizing a
sector unit to provide backup will allow the department to maintain
patrol beat strength more often and should improve initial and backup
response times as well as facilitate call dispatching.
Overall , 4-5 additional beats (patrol + sector) and 1 additional CSO would
be generally maintained on swing shifts under the proposed staffing levels.
As mentioned above, although the swing shift workforce is expected to
average 13 officers, there will be a number of shifts when the full
complement of 16 officers is available. During these periods the
department plans to experiment with selective enforcement and/or
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Page 8, Item 9
Meeting Date 9/2/86
specialized units. For example, a two-officer "accident" unit may be
staffed during late night Friday and Saturday shifts to apprehend drunk
drivers and to investigate accidents possibly involving drunk drivers.
Also, units may be assigned to special problem areas such as the Chula
Vista Marina/Bayside Park or Broadway.
4. Two (2) Peace Officers are Recommended to Free Up the Desk Sergeant to
Serve as a Second Field Sergeant on Swing Shifts.
In the past two years, the department has added a large number of new
patrol staff, replacing officers retiring under the new 2% at 50
retirement plan and adding staff to provide services in the annexed area.
Currently, 50% of the authorized peace officers have been with the
department for less than one year; 70% have been with the department for
less than 3 years. (A large number of these officers do, however, have
some experience with other police departments. ) The high proportion of
junior officers increases the need for supervision. In the patrol
workload analysis, it was assumed that some of the Police Agent's current
call for service workload would be diverted to beat officers, thereby
providing more time for the Agent to assist junior officers.
Additionally, for the swing shifts, it is recommended that a second Field
Sergeant be added to provide needed supervision. The proposed staffing
levels would assign 16 Beat Officers, 1 Canine Officer, and 2 CSOs to the
swing shifts. On average, a workforce of 16 regular staff plus 2-3
reserves would be expected. It is felt that this staffing level , in
conjunction with the high ratio of new officers and the increased number
of serious incidents, severely strains the supervisory capacity of the
current Field Sergeant and Police Agent on swing shifts.
To provide the additional supervision needed, it is recommended that two
(2) Peace Officers be added to fill-in for the Desk Sergeant on the two
swing shifts. Currently, the Desk Sergeant is principally responsible for
responding to requests for service at the front desk, processing arrested
persons, and supervising the Communications Center. In the PAPE Management
Review of the Police and Fire Department, it was suggested that further
study be given to redeploying the Desk Sergeant position to act as a
second Field Sergeant. The report noted that:
"this redeployment, which could be phased in over time as
the City grows, .. .would increase the current level of
supervision of patrol staff and enable future growth in the
number of Peace Officers. . .without having to budget (for)
additional Police Sergeants."
The prorated FY 86-87 cost for these two fill-in positions would be
$69,810; the recurring annual costs would be approximately $88,720.
Page 9, Item 9
Meeting Date 9/2/86
As part of the FY 87-88 budget process, staff plans to undertake a more in
depth assessment of the supervisory needs on all patrol shifts, in
conjunction with a review of the Desk Sergeant's role. That study will
also assess the possibility of "civilianizing" some Desk Sergeant
responsibilities as well as examining the appropriate rank (Peace
Officer/Police Agent) for replacing the Desk Sergeant position.
5. Eight (8) Additional Police Sedans are Needed for Beat Officers and Two
(2) Additional Police Sedans are Needed for Supervisory Staff
Currently, the department has 18 patrol sedans for beat officers. Based
upon the workforce expected during overlap periods and the expected
downtime of police vehicles, an increase of 8 sedans for beat patrol is
recommended. This would provide a total of 26 vehicles for beat
officers. Without this increase in patrol cars, the additional staff
available during the planned extended overlap period on Friday and
Saturday nights could not be effectively utilized.
Of the 8 additional vehicles needed for beat patrol , five are needed for
use by the additional beat officers recommended in this report. The other
three of the 8 additional patrol vehicles are required as a result of the
recent annexation. Initially, only three police sedans were budgeted,
representing the addition of three police beats. This increase did not,
however, take into account that 6 additional vehicles would be needed
during the planned extended shift overlaps.
Two additional vehicles are recommended for supervisory staff. One
vehicle is needed for use by the second Field Sergeant position to be
staffed during swing shifts. The second vehicle is recommended for use by
a second Police Agent who will be available during the extended peak hour
overlap under the new work schedule.
No additional vehicles are needed as a result of the recommended increase
in Community Service Officers.
The cost for the ten additional vehicles is $159,420. The recurring
vehicle costs are estimated at $60,580. (Recurring costs are likely to be
somewhat overstated since some of the additional units would have limited
mileage and would not be replaced on the current 2-year cycle. ) There is
adequate space in the Police parking lot for the additional vehicles when
they are not in use.
6. Two (2) Additional Communications Operators are Recommended for the
Communications Center
During FY 85-86, the police call for service workload grew by 17%. Over
the same period, the fire call for service volume grew by 23%. As the
workload has increased, the elapsed time for answering incoming citizen
calls and for dispatching calls to the field has increased, particularly
during peak workload hours. While the additional Peace Officers
Page 10, Item 9
Meeting Date 9/2/86
recommended in this report will provide sufficient field staff to handle
the call for service workload, radio and teletype transmissions flowing
through the Center will also be increased as a result of an increased
volume of officer-initiated activity. Based upon an analysis of projected
police and fire call for service volumes and related radio and teletype
workloads, and the distribution of this workload between shifts, two
additional Communications Operators are recommended.
The table in Exhibit 5 illustrates the proposed allocation of operators at
the new staffing level . In reviewing the table it should be noted that:
-- the Center is currently staffed with 16 operators;
-- one additional operator would be added to the day shift and one
additional operator would be added to a swing shift. This would
provide 4 operators on the heavy volume swing shifts and day shift; 3
operators would be staffed on the graveyard shifts.
-- the proposed shift staffing would provide one police dispatcher, one
fire dispatcher, and one call taker for the 3-person graveyard
shifts; two police dispatch positions would be staffed on the
4-person swing and day shifts;
-- under the new shift schedule, the shift overlap during the peak
workload periods would provide a fifth operator to function as a
needed second call taker.
The prorated FY 86-87 cost for adding these two positions would be
$40,170; the recurring costs would be $58,500.
Additionally, to make effective use of the overlap periods, a fifth
telephone station must be established in the Center. The one-time
equipment costs for a work station would be $200.
7. Additional Computer Equipment is Recommended to Improve Communications
Center Operations.
The increase in call for service volume places a significant strain on the
ability of Communications Operators to effectively manage the call
workload under the current "paper" system. As noted in the report on the
Communications Center prepared by Alta Consulting Services Incorporated
(ACSI) : "The lives and safety of many people rest on the ability of the
Communication Center to function best when it is needed most (at peak
volume conditions) ."
The report goes on to state that: "Communication systems respond to
increases in volume and service in an exponential manner. That means that
a (small ) level of increase may have . . . . a large impact on system
performance."
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Page 11 , Item 9
Meeting Date 9/2/86
The higher call for service volumes make it increasingly difficult for
communications operators to track the status and priority of waiting
calls. Moreover, as additional patrol staff are added to respond to these
calls, the operators have increasing difficulty in monitoring the status
of individual beat units. During the peak overlap periods, 32-38 staff,
including beat officers, CSOs, Canine units, Police Agents, Field
Sergeants and Reserves, could be in the field. The current paper system
for tracking units and calls begins to break down under these workload and
staffing levels.
To resolve these potential tracking problems, the ACSI study proposed
development of a Computer Aided Dispatch (CAD) System on a dedicated
minicomputer. Implementation of this system is, however, at least 18
months into the future, given the lead time necessary for remodeling the
Communications Center, developing CAD specifications, evaluating proposals
and implementing the system. As an interim step, a partial automation of
the current system is needed.
In 1984 the City's Data Processing Division implemented a limited computer
aided system for fire dispatching on the mainframe computer. This system
was needed at the time to deal with the increasing complex decisions
required under the City' s various automatic aid and mutual aid
agreements. The system has significantly enhanced the ability of
operators to respond quickly to both fire and medical emergencies.
The proposed interim automation of the police dispatching system would
also use the mainframe computer. Among other things, the system would
enable operators to:
-- track the status (availability) of all beat units. Operators would
automatically know which units were free as well as which units were
committed to lower priority activities and could be interrupted for
high priority calls or backup requirements;
-- track the status and priority of all calls for service. Operators
would automatically be informed of the highest priority call waiting
for dispatch.
This type of information is needed to properly manage the workload, so
that lower priority calls can be stacked during high workload periods,
enabling the department to retain a ready response for emergencies.
Additionally, the proposed interim automated system will :
-- eliminate the need for typing the daily log of service calls. This
printout would be automatically produced;
-- provide the department with a hands-on experience to better plan the
design of a more sophisticated and more costly CAD system.
Page 12, Item 9
Meeting Date 9/2/86
If deemed desirable and cost effective in the future, the system could be
further developed to:
-- provide the ability to perform more sophisticated analysis of current
crime patterns. This might include printouts of accident information
by time and location to better inform the use of the traffic
enforcement unit or of the geographic distribution of residential
burglaries, to better inform the work of the neighborhood watch
program or special enforcement units; and
-- provide call for service statistics to enable staff to monitor
workload on an on-going basis.
The initial equipment costs for an interim automated dispatch system are
$23,640 and are identified below:
-- Data Communications Equipment $16,650
-- Terminals (3) 5,010
-- Printer 850
-- Maintenance 1 ,130
$23,640
The recurring annual cost (for maintenance) is $1 ,510.
The data communications equipment is needed to reduce (or eliminate) the
need to shut down the Police system for daily maintenance, to reduce the
recovery time of data in case of a system shutdown, and to reduce the
interactive response times. This equipment may be able to be integrated
into the future CAD system. If this is not possible, the equipment would
be put to use by the Data Processing Division, which was planning to
request similar equipment for other purposes in the FY 87-88 budget.
If an interim automated dispatch system is approved, its development and
implementation would be given high priority by Data Processing staff.
Staff estimate that the system could be operational by November.
SUMMARY AND COST OF RECOMMENDATIONS:
The recommended staffing and equipment changes are summarized in the table
below. In reviewing the table, important points to note are:
-- the addition of 18 total staff represents a 10.5% increase in the
department's overall staffing;
-- the addition of 14 peace officers represents an 11 .8% increase in the
department's total sworn staff and an 18.2% increase in the patrol
section's sworn staff. The staffing increase would represent a 23%
increase in the peace officers available for beat patrol , needed to
handle the 17% increase in call volume and 40% increases in the time
needed for backup and crime reports.
Page 13, Item g
Meeting Date 9/2/86
-- the addition of 2 communications operators represents a 12.5%
increase in Communications Center staffing; the 2 additional CSOs
would increase the current number of patrol based CSOs from 4 to 6.
-- the recommended supplemental appropriation of $494,890 represents an
approximate 5.7% increase in the department' s budget;
-- of the total cost, $187,240 (25.1%) would be attributable to services
to the recently annexed area.
SUMMARY OF RECOMMENDED CHANGES
STAFFING ADDITION FY 86-87 COST
14 Peace Officers $487,000
2 Community Service Officers 34,460
2 Communications Operators 40,170
TOTAL: $561 ,630
EQUIPMENT ADDITION
10 Police Sedans $159,420
Telephone Answering Station 200
Computer Equipment 23,640
TOTAL: $183,260
FISCAL IMPACT: The total cost of the recommended additions to the Police
budget is $744,890. Of this amount, the Council has previously appropriated
$250,000, which was frozen pending this report. Thus, an additional $494,890
is recommended to be appropriated from the unappropriated balance of the
General Fund to implement this report's recommendations. Of this additional
amount, $187,240 is attributable to the recently annexed area and $307,650 to
the pre-annexation City.
Based on FY 86-87 revenue projections, there was an estimated operating
surplus of $675,000 for the recently annexed area. During the budget process,
all of these funds were allocated to the Telegraph Canyon Channel Project.
Pending changes in the Federal "match" and/or in the channel design could
significantly reduce the City's cost for this project. If so, some of the
$675,000 could be transferred back to the General Fund, and the "paper loan"
of $187,240 to the Montgomery budget (for its share of the cost of these
recommendations) could be repaid.
Exhibit 6 provides an updated City-wide General Fund Summary for FY 1986-87,
including the recommended additional $494,890 appropriation for Police
services. As indicated in the Exhibit, it is estimated that operating
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Meeting Date 9/2/86
expenditures will exceed revenues by about $166,000 for the year if the
recommendations in this report are approved. If one-time expenditures (such
as the $200,000 budgeted for the General Plan update) were excluded, the
recommended additional expenditures for Police staff and equipment could have
been absorbed within the projected revenues for FY 1986-87.
If Council wishes to consider phasing in some of the recommendations because
of the magnitude of their cost, an alternative implementation plan has been
developed. This plan would reduce the additional appropriation needed from
$494,890 to $339,240, a reduction of $155,650 or 31%. Under the alternative
plan, 10 of the 14 additional Peace Officers would still be targeted for hire
on October 1 , 1986, along with the 2 recommended Communications Operators.
The computer equipment needed to provide an interim automation of the police
dispatching system would also be scheduled for immediate implementation. The
remaining 4 Peace Officers and the 2 recommended Community Service Officers
would be targeted for hire on April 1 , 1987. Lastly, 3 of the 10 recommended
vehicles would be postponed until FY 87-88. Staff does not recommend this
plan, but it is described to provide a phased-in alternative should Council
wish to consider such an approach.
WPC 1143A
by the City Coy►r►vil of
Chula Vista, California
Dated
EXHIBIT 1
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EXHIBIT 2-1
PATROL WORKLOAD ANALYSIS: FY 86-87
PART A. COMMUNITY GENERATED WORKLOAD WORKLOAD HOURS
1. Calls for service (CFS) to be handled
through dispatch of a Peace Officer
assigned to a patrol beat 43 , 396 CFS
--includes adjustment for projected
population growth
2 . Person-Hours required to respond to CFS 21, 698 HRS
--based on average call handling time of
30 minutes
3 . Person-Hours needed for "back-up" 9 , 308 HRS
--42 .9% of CFS require backup from officers
assigned to beats at an average backup
time of 30 minutes
4. Person-Hours required for reports 11, 572 HRS
--on average, every 100 CFS generate 80 reports
with an average report time of 20 minutes
5. Person-Hours required for prisoner transport 1, 366 HRS
--Every 100 arrests generates 24 transports
to detention facilities by officers assigned
to beats with an average transport time of
1. 32 hours
6. Additional adjustment for Current CSO Workload (1, 130)HRS
--projected beat officer workload already excludes
most of the call volume presently handled by CSOs.
This added adjustment accounts for additional
CSO work not reflected in the sample period
7. Adjustment for Increased CSO Staffing (1,920)HRS
--workload to be handled by 2 NEW CSOs
TOTAL PERSON HOURS REQUIRED TO HANDLE COMMUNITY
GENERATED WORKLOAD AND ASSOCIATED ACTIVITIES 40, 894 HRS
EXHIBIT 2-2
PART B. TIME DESIRED FOR PROACTIVE PATROL AND
SELF-INITIATED ACTIVITIES HOURS
1. One hour of proactive patrol and self-initiated
activity for each hour spent handling a call for
service 40, 894 HRS
2 . Adjustment for Imbalanced "Free" Time 7, 304 HRS
--an adjustment is made for workload aberrations
which result in excessive amounts of "free"
patrol time, such as periods of the graveyard
shift when call for service volumes drop
significantly. This excess proactive time
needs to be allowed for in the formula to ensure
that an adequate number of staff are available
for proactive patrol at other times of the day.
TOTAL PERSON-HOURS REQUIRED FOR PROACTIVE PATROL AND
SELF-INITIATED ACTIVITIES 48, 198 HRS
PART C. TOTAL PERSON HOURS REQUIRED TO HANDLE BOTH
COMMUNITY GENERATED WORKLOADS AND ACHIEVE
DESIRED LEVELS OF PATROL (Part A + Part B) 89 , 092 HRS
EXHIBIT 2-3
PART D. DUTY TIME NOT AVAILABLE FOR BEAT PATROL HOURS
TOTAL HOURS AVAILABLE PER OFFICER PER YEAR: 2 , 080 HRS
1. Projected average hours unavailable for work ( 211)HRS
(i.e. vacation, holidays, sick leave,
injury, light duty and court time)
2 . On duty time devoted to training ( 40)HRS
3 . On duty time not available for beat patrol ( 352)HRS
(e.g. briefing, meals, vehicle servicing,
and end of shift)
NET OFFICER TIME AVAILABLE FOR BEAT PATROL PER YEAR: 1,477 HRS
PART E. PATROL OFFICERS NEEDED IN PATROL TO HANDLE
1986-87 WORKLOAD STAFF
1. Staff required to provide 89, 092 beat patrol hours 60. 32
(Reference Section C. - 40, 894 hours for community
generated workload plus 48, 198 hours for proactive
patrol and self-initiated activities divided by
1,477 hours available per officer. )
2 . Allowance for department turnover 2 . 07
--represents training time required to fill
approximately 5 staff vacancies per year
TOTAL PEACE OFFICERS REQUIRED TO STAFF BEATS 62 . 39
EXHIBIT 2-4
PART F. COMPARISON OF PEACE OFFICERS REQUIRED TO ALLOCATED
POSITIONS STAFF
1. Total Peace Officers authorized for Patrol Division 60. 00
2 . Peace Officers assigned to special enforcement and
not available for routine beat patrol duties ( 8. 00)
--Traffic unit = 4 officers
--Canine unit = 4 officers
3 . Peace Officers needed to fill-in for Police Agent
when that position is vacant ( 1.71)
4 . Total Peace Officers available for assignment to beats 50.29
5. Peace Officers required to staff patrol beats 62 . 39
ADDITIONAL PEACE OFFICERS REQUIRED 12 . 10
ADDITIONAL CSOs REQUIRED 2 . 00**
**In PART A-7 of this Exhibit it was assumed that 2 new CSOs
would be added and their projected workload was factored
into the staffing formula at that stage of the analysis.
EXHIBIT 3
CURRENT VERSUS PROPOSED PATROL STAFFING LEVELS
CURRENT PROPOSED
AUTHORIZED AUTHORIZED
SHIFT/SQUAD STAFF STRENGTH STRENGTH
GRAVEYARD/Squad A FIELD SERGEANT 1 1
POLICE AGENT 1 1
Friday-Monday 2200-0800* PEACE OFFICER 11 11
CSO 0 0
CANINE OFFICER 1 1
13 13
GRAVEYARD/Squad B FIELD SERGEANT 1 1
POLICE AGENT 1 1
Tuesday-Thursday 2200-0800* PEACE OFFICER 9 10
Friday 0700-1700* CSO 0 0
CANINE OFFICER 1 1
11 12
DAY/Squad C FIELD SERGEANT 1 1
POLICE AGENT 1 1
Sunday-Thursday 0700-1500* PEACE OFFICER 9 11
CSO 2 2
CANINE OFFICER 0 0
12** 14**
SWING/Squad D FIELD SERGEANT 1 2***
POLICE AGENT 1 1
Wednesday-Thursday 1400-2400* PEACE OFFICER 11 16
Friday-Saturday 1600-0200* CSO 1 2
CANINE OFFICER 1 1
14 20
SWING/Squad E FIELD SERGEANT 1 2***
POLICE AGENT 1 1
Saturday 0700-1700* PEACE OFFICER 12 16
Sunday-Tuesday 1400-2400* CSO 1 2
CANINE OFFICER 1 1
15 20
* Reflects the proposed new shift schedule
** Not including motorcycle officers assigned to the Traffic
Enforcement Unit
***The need for a second Field Sergeant on swing shifts is
discussed in Section 4 of this report
.....*4
EXHIBIT 4
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EXHIBIT 5
CURRENT VERSUS PROPOSED COMMUNICATIONS CENTER STAFFING
CURRENT PROPOSED
SHIFT/SQUAD POSITION STRENGTH STRENGTH
GRAVEYARD/Squad A POLICE DISPATCH 1 1
FIRE DISPATCH 1 1
Friday-Monday 2200-0800* CALL INTAKE 1 1
3 3
GRAVEYARD/Squad B POLICE DISPATCH 1 1
FIRE DISPATCH 1 1
Tuesday-Thursday 2200-0800* CALL INTAKE 1 1
Friday 0700-1700*
3 3
DAY/Squad C POLICE DISPATCH 1 2
FIRE DISPATCH 1 1
Sunday-Thursday 0700-1500* CALL INTAKE 1 1
3 4
SWING/Squad D POLICE DISPATCH 2 2
FIRE DISPATCH 1 1
Wednesday-Thursday 1400-2400* CALL INTAKE 1 1
Friday- Saturday 1600-0200*
4 4
SWING/Squad E POLICE DISPATCH 1 2
FIRE DISPATCH 1 1
Saturday 0700-1700* CALL INTAKE 1 1
Sunday-Tuesday 1400-2400*
3 4
TOTAL STAFF: 16 18
*Reflects proposed new shift schedule
EXHIBIT 6
GENERAL FUND SUMMARY FISCAL YEAR 1986-87
A. Reserve Balance 7/1/86 $9,176,000
B. General Fund Estimated Revenues 86/87 $28,909,220
C. Transfers In 1 ,600,760
D. Estimated Total Revenues and Transfers In $30,509,980
E. Approved 86/87 Budget 29,541 ,400
F. Supplemental Appropriations
- Since 7/1/86 64,830
- Estimated Salary & Benefit Increases 1 ,500,000
- Recommended Additional Police Services 494,890
G. Estimated 86/87 Operating Budget 31 ,601 ,120
H. Less Estimated Expenditure Savings 86/87 ( 925,000)
I. Estimated Operating Expenditures Over Revenue ( 166,140)
J. Estimated Reserve Balance 6/30/87 Prior to Transfers Out* $9,009,860*
* The Transfers Out from Reserves total $1 ,608,690. After these Transfers Out are taken
into account, the Estimated Reserve Balance for 6/30/87 is reduced to $7,401,170. The
Transfers Out from Reserves include:
Loan to Otay Valley Redevelopment Area $ 486,310
Loan to Town Centre II 122,380
Transfer to Public Liability Trust Fund 200,000
Transfer to Telegraph Canyon Channel Project 675,000
Heritage Park Land Acquisition 125,000
$1 ,608,690
WPC 0914I