LAFCO
Corrections and Additions to the Law Enforcement Public Review Draft Municipal Service Review
Read the report at Local Agency Formation Commissions ↗
BARACCO
and Associate~s,,===~
ARCHITECTURE AND PLANNING:
40 Eureka Street· P.O. Box 1415 • Sutter Creek, CA 95685 • Fax (209) 267-5185
(209) 267-5155
August 10, 2011
MEMORANDUM
To: Contra Costa Local Agency Formation Commission
From: Bruce Baracco, Baracco and Associates~.
Subject: Corrections and Additions to the Law Enforcement Public Review
Draft Municipal Service Review
Following release of the Law Enforcement MSR Public Review Draft on July
18, 2011, a number of comments were generated, including review
comments from Chiefs of Police, The Comment Log and comment
submissions were provided to the Commission as a separate package,
In addition, a request was made for each Police Department to provide
LAFCO with their 2010 average Priority 1 response time, and their three year
(2007-2009) crime clearance rates,
Attached for Commission review are those pages of the Public Review Draft
where corrections and additions were made, Strikethrough type indicates
deletions and underline type indicates additions.
As part of the report finalizing process, all figures and tables will be updated
to reflect new information provided by the respective Police Departments,
* * * *
Law Enforcement MSR
Service Providers
This report focuses on the Office of the Sheriff, 19 cities and seven special districts who provide
or contract for law enforcement services within Contra Costa County and are under LAFCO
jurisdiction as shown in Figure 1-1.
J. ..
Figure 1-1: Local Agency Law Enforcement Providers Uader LAl'CO isdietiaa
This MSR also includes profile
Cities
information on other law enforcement
service providers not under Contra Costa
LAFCO jurisdiction, including regional,
state, and federal agencies; educational
agencies; and private companies. Please
refer to Chapters 27 through 31.
This report is the sole MSR in this
cycle for the Contra Costa County Sheriffs
Office (SO) and three special districts:
County Service Area (CSA) P-2, CSA P-S,
and CSA P-6. The SO is a Countywide
agency for which a Sphere of Influence
(SOl) is not a consideration; however,
because of the interconnections with
other law enforcement agencies within
the County, it is important to review the
Office of the Sheriff. LAFCO will utilize
this MSR to review and possibly update
the SOls for the three law enforcement
related special districts listed above, and
possibly for other agencies covered in the
MSR.
MSRs covering all municipal services
were prepared for the 19 cities previously
as referenced in each city chapter of this
report. City police services information
gathered for this report will be utilized
for any subsequent city MSRs in the next
cycle. Four special districts that provide
polices police services were previously
studied in their respective MSRs for
district-wide services. These are the
Diablo Community Services District, the Kensington Police Protection and Community Services
District, and CSA M-29 and CSA M-30.
Executive Summary
El Cerrito An area along Vista Heights Road east of the Mira Vista Country Club is within the El
Cerrito SOl but is within the Richmond city limits and should be removed from the
El Cerrito SOL (Refer to Map 9-1.)
This is not to suggest that the Vista Heights area be detached from the City of
Richmond and annexed to El Cerrito. It is simply suggested that El Cerrito' SOl be
removed from an area that is already within the corporate limits of another city.
CSA M-30 In order to simplify the overlapping governance issues associated with CSA M-30
(see below), a 'zero' SOl is suggested as the first step in dissolution and annexation
to the Town of Danville. This would also allow those residents of the Alamo Springs
Subdivision to be removed from CSA P-2/Zone B, CSA P-6 and CSA R-7/Zone A.
CSA P-2 Because the area does not warrant enhanced law enforcement services, the portion
of CSA P-2 west of Danville (see below), should be removed from the CSA P-2 SOl as
the first step in detaching from CSA P-2. The area would still remain within CSA P-6
for basic law enforcement services. (Refer to Map 23-5.)
The P-6 Conundrum
There are a number of governance measures related to County Service Area (CSA) P-6, the
Countywide special district (minus the cities and Kensington PP&CSD) which was designed to assist
in the funding of law enforcement services in the unincorporated area of the County. These
measures include:
• The SO, in conjunction with County GIS needs to precisely map (by metes and bounds)
each of the 111 Zones within the District;
• Tax Rate Area (TRA) 85065 in KenSington needs to be revamped to eliminate the CSA P-
6 allocation as part of the Basic 1 % Property Tax;
• Within the City of San Ramon portion of CSA M-29, the affected TRAs need to be
revamped to eliminate the CSA P-6 allocation as part of the Basic 1 % Property Tax;
• CSA P-6 maps should be corrected to eliminate CSA P-6 from the unincorporated
portion of CSA M-29 (refer to Map 23-3);
• Properties within CSA M-30 (which receive their law enforcement services from the
Town of Danville) pay property taxes (a portion of which is allocated to CSA P-6) and
are assessed a CSA P-6 special tax (along with 11 parcels that are in the Town limits).
Both the TRA allocation and the special tax should be eliminated from these properties;
• Existing Zones within CSA P-6 which consist of four parcels or less should be eliminated
after paying a total of$l,OOO in assessment fees;
• The SO and the Board of Supervisors should consider establishing P-6 Advisory
Committees in areas that receive 'enhanced' police services from CSA P-6 funding (East
Richmond Heights, North Richmond, and Bay Point) similar to the P-6 Advisory
Committee established in Discovery Bay; and
• Those CSA P-6 areas that are within a P-6 Zone and are generating sufficient funds to
warrant a Resident Deputy (Bethel Island and Norris Canyon) should petition the SO
and the Board of Supervisors to add this service.
21
Law Enforcement MSR
County Service Area M-29 (Dougherty Valley)
Until Dougherty Yalley reaches build-out, it is likely that the revenues generated by CSA M-Z9
will not be sufficient to account for all the costs attributed to CSA M-Z9. Deficits have been
averaging around $1.8 million per year over the past two fiscal years. The City of San Ramon
should request, and the Board of Supervisors as the Board of Directors for CSA M-Z9, should
consider payment of this debt out of existing CSA M-Z9 reserves, which had an available fund
balance of $6.Z8 million as of June 30, Z010.
I
County Service Area M-30 (Alamo Springs)
Residents within CSA M-30 are within two other police protection special districts from which
they receive no services: CSA P-Z/ Zone B (Alamo area); and CSA P-6 (Countywide unincorporated
area except Kensington). (Refer to Map Z3-5.) In addition to the approximate $ZZ,Z63 that CSA M-
30 residents are assessed each year for services they receive from the Town of Danville, they also
pay $Z4,764 to CSA P-Z and CSA P-6. As a governance and financial issue, it makes more sense to
dissolve CSA M-30 (thereby detaching from CSA P-Z/Zone Band CSA P-6) and annex that territory
to the Town of Danville (who is the current provider of municipal services to CSA M-30). As a start,
this MSR suggests that CSA M-30 have a 'zero' Sphere of Influence (SOl).
Residents of the Alamo Springs Subdivision are partially within the Town of Danville and
partially within unincorporated county territory. There may be historical reasons for this situation,
but it has resulted in overlapping service areas as described above. In addition, residents of CSA M-
30 are within CSA R-7/Zone A (except for seven acres adjacent to Danville) and pay property taxes
which provides park and recreation, trails and landscaping services in the Alamo area. The nearest
park facility funded by CSA R-7 is aRe mile away Hap McGee Ranch Park which is three-tenths of a
mile from the CSA M-30 boundary. The next nearest park facility funded solely by CSA R-7 is
Rancho Romero School Park seven-tenths of a mile from CSA M-30. The most straightforward
solution to this situation is to have the CSA M-30 territory annex to the Town of Danville, and
concurrently detach from CSA P-Z/Zone B, CSA P-6 and CSA R-7/Zone A.
At the very least, property within CSA M-30 should be removed from CSA P-Z/Zone Band CSA
R-7/Zone A; and the whole of Alamo Springs Subdivision (both city and unincorporated portions)
should be removed from CSA P-6.
County Service Area P-2 (Alamo, Blackhawk and Other)
CSA P-Z includes three distinct areas: Blackhawk (which includes Zone A of CSA P-Z); Alamo
(which includes Zone B of CSA P-Z); and an unincorporated area adjacent to the Town of Danville
(with no designated Zone). (Refer to Map Z3-1.) The follOwing governance measures have been
identified for CSA P-Z:
• At the present time, the boundary for CSA P-Z in the Blackhawk/Camino Tassajara area
consists of 4.3 square miles with an SOl coterminous with its boundary. This portion of
CSA P-Z is within the larger Blackhawk-Camino Tassajara census designated place
(CDP) which is 9.3 square miles. Consideration should be given to increasing the CSA P
Z SOl in the Blackhawk/Camino Tassajara area to 9.3 square miles consistent with the
Blackhawk-Camino Tassajara CDP. (Refer to Map Z3-1.)
• At the present time, the boundary for CSA P-Z in the Alamo area consists of 5.3 square
miles with an SOl coterminous with its boundary. This portion of CSA P-Z is within the
larger Alamo CDP which is ~ 9.7 square miles~ (aRe alsa iRelliees the aejaeeRt CSA P-
5, Round Hill (which is adjacent to CSA P-Z). is also within the Alamo CDP.
Executive Summary
Consideration should be given to increasing the CSA P-2 SOl in the Alamo area to ~
9.7 square miles consistent with the Alamo CDP; or the area which was proposed for
incorporation. Consideration should also be given to including the district boundaries
(1.2 square miles) of CSA P-5 (Round Hill) within the CSA P-2 Alamo area SOl. (Refer to
Map 23-1 and Map 23-2.)
As an alternative, consideration could be given to expanding the SOl for CSA P-5 (Round
Hill) to include all of the Alamo area; and signaling a future merger of CSA P-2 in the
Alamo area into CSA P-5. Zone B for CSA P-2 could remain intact, and would become a
Zone within the new CSA P-5. CSA P-2 would then consist of the Blackhawk area only
(and in the future Camino Tassajara if that area were to be added to the CSA P-2 SOl).
• The third geographic area within CSA P-2 is located on the west side of Danville and is a
0.65 square mile ( 417 acre) area comprised primarily of the Las Trampas Regional
Wilderness. This area is uninhabited and generates approximately $7,000 per year in
CSA P-2 property tax revenue. Consideration should be given to removing this area
from the CSA P-2 SOl and eventually detaching it from CSA P-2. This area would still
remain in CSA P-6 for basic law enforcement services. (Refer to Map 23-1.)
• The SO, in conjunction with the Contra Costa County Assessor, should insure that all
properties (both residential and commercial) within CSA P-2, Zone A are being assessed
for Zone A special taxes.
Best Practices
There are a number of innovative law enforcement techniques and practices that have been
implemented by local law enforcement agencies. The following have been identified:
• Richmond PD - Enhanced Technology including the Closed Circuit Television Cameras
(CCTV) to provide video surveillance at key locations; and 'Shotspotters' which are
acoustic sensors that pinpoint the location of a gunshot.
• County Sheriff - Special Response Justice Team (J-Team) is a multi-tasked special
enforcement unit, conducting pro-active patrol in high crime areas; performs burglary
suppression, narcotics investigations, serves search warrants and conducts surveillance.
• Pinole PD - CsmmllRit;y PreservatisR aRe Safet;y YRit (CPSY) EsmsiRes EsmmllRit;y
psliEiRg, Esee eRferEemeRt, EsmmllRit;y relatieRs, slisiRess alert, aRe ReigRserReee
watER pre'Aeee sy aR iRtegratee team (Crime PreveRtieR OffiEer, Ceee IlRferEemeRt
OffiEer aRe CemmllRit)' Safety S}3eEialist). No longer funded.
• Martinez PD -- Neighborhood Policing Areas (NPA's) insures that a patrol officer is
designated for each of the 24 NPA's in the city; facilitates direct contact to the assigned
officer bye-mail with residents or businesses within each NPA.
• Any PD or SO -- Canine (K-9) Units consisting of trained police dogs and
officers/handlers; the more the better. A valuable resource for any law enforcement
agency.
• Pittsburg PD -- Hiring of four retired officers (annuitants at 960 hours per year) to work
as detectives, following up on reported crimes. One focuses on cold murder cases, a
second on financial crimes, and the other two on general follow-up on reported crimes.
• Pittsburg PD -- Vital and timely arrest and report information is scanned automatically
to other agencies in the county via a system called the "Daily Blast" Interviews are
automatically captured on video with sound, transcribed and attached to reports, and
23
Law Enforcement Services Overview
Service Adequacy
Each law enforcement agency has been evaluated using a number of factors. Exact comparisons
are not always possible due to the differing conditions and policing methods used. Adequacy of law
enforcement services can be evaluated based on a number of elements. For the purposes of this
report, services are assessed according to accreditation, response times, clearance rates (the
portion of crimes solved), management practices and staffing ratios. For a comparison of service
related data, refer to Table 3-2: Service Indicators.
I
Accreditation
The Commission on Accreditation for Law Enforcement Agencies (CALEA) is a national
organization that functions as an independent accrediting authority. Law enforcement agencies
may voluntarily choose to apply for CALEA accreditation. CALEA offers an accreditation program
as well as a law enforcement recognition program in which the agency is required to meet a more
modest list of standards. CALEA law enforcement accreditation does not require the law
enforcement agency to meet specific benchmarks in terms of response time, staffing levels or crime
clearance rates. CALEA accreditation requires the police service provider to pass inspection and to
meet dozens of requirements such as annual documented performance evaluation of each
employee, investigation of all complaints against the agency and its employees, and annual review
of allocation and distribution of personnel. Of the service providers in the County, only East Bay
Regional Park District Police Department is accredited by CALEA.
Clearance Rates
The effectiveness of a law enforcement agency can be gauged by many factors, including crime
clearance rates or the portion of crimes that are solved.
Figure 3-6: Clearance Rates (CY 07-09)
Cleared crimes refer to offenses for so .~ I
which at least one person was arrested,
Antioch
charged with the offense, and turned
Brentwood
over to the District Attorney for Clayton
prosecution. A crime is also considered Concord
cleared by exceptional means if the Danville·
offender dies, the victim refuses to EI Cerrito
Hercules
cooperate, or extradition is denied.
Kensington CSO
There are no standards or guidelines on
Lafayette·
the proportion of crimes that should be
Martinez
cleared.
Moraga
Oakley+
Figure 3-6 depicts the clearance rates
Orinda·
of all violent and property offenses,
Pinole
which is calculated as the average rate
Pittsburg
between 2007 and 2009. and as reported
Pleasant Hill
to the California Department of lustice Richmond
U2QJJ.. Providers countywide on average San Pablo
cleared 38.3 percent of violent crimes San Ramon
Walnut Creek
(homicide, forcible rape, robbery and
Average
aggravated assaUlt) committed in 2007,
2008 and 2009, and 10.6 percent of 0% ZO% 40% 60% 80%
property crimes (burglary, motor vehicle • Violent Crimes Clearance Rate Property Crimes Clearance Rate
• Denotes cities contracting for services from the Sheriffs Office.
49
Law Enforcement MSR
theft, and thefts of greater than $400) during that same time period. The clearance rate for violent
crimes ranged from 16 percent in Richmond to 62 percent in Clayton, while the clearance rate for
property crimes ranged from two percent for Kensington CSD to 35 percent for the Sheriff's Office.
Those agencies with the highest clearance rate for violent crimes included Clayton (62 percent),
Oakley (49 percent), Antioch (47 percent), and Brentwood (47 percent). Those agencies with the
highest clearance rate for property crimes included Antioch (19 percent), Concord (16 percent),
Pinole (16 percent), and EI Cerrito (15 percent).
Clearance rates for all agencies provided by the California State Department of Justice, Criminal
Justice Statistics Center and are based on the number of cleared crimes as reported by each agency.
In the case of agency's that contract for services from the Sheriff's Office, cleared crimes are
reported by the Sheriff's Office, not the City. Discrepancies currently exist with respect to crime
clearance rates. The allthsrs are attemj3tiRg ts reEsREile these aisErej3aREies fer j3I1BliEatisR iR the
liRal rej3srt. Clearance rates as reported by the agency may differ depending on the agency's
definition of a cleared crime. An offense is cleared or "solved" for crime reporting purposes to the
State when at least one person is arrested, charged with the commission of the crime, and turned
over to the court for prosecution or referred to juvenile authorities. In certain situations a clearance
may be counted by "exceptional means" when the police definitely know the identity of the
offender, have enough information to support an arrest, and know the location of the offender but
for some reason cannot take the offender into custody. Local clearance rates (where provided by
the local PO) are indicated in Table 3-2: Service Indicators, along with the 001 clearance rates.
Response Times
The ability of local law enforcement to respond to calls (especially Priority One calls - Code 3
with sirens) will be affected by the reduction in beat patrol officers and deputies throughout the
County. At the present time, local law enforcement is doing an adequate job in responding to
Priority One calls. On the other hand, lower priority calls are requiring longer response times.
Although police response times for serious crimes in progress are an important indicator of
service adequacy, there are not clear standards as to what that response time should be. Police
response times were traditionally used to measure effectiveness. However, more recent research
indicates that response time does not have a significant effect on crime-solving, because most
crimes are "cold" crimes and victims do not tend to call police immediately after the crime is
committed. The modern approach to response time-differential response-is to ensure quick
response to serious crimes (Priority 1) in progress, when there are opportunities to save a victim
and/or to apprehend the criminal, and to inform lower-priority callers (Priority 2 through 6) that
response time may be lengthy. Experiments indicate that differential response leads to both citizen
and officer satisfaction.'
7 Walker and Katz, 2002.
50
Table 3-1: Staffing and Budget Indicators
Revisions indicated in bold underline type.
Sworn Staff per Police General Percent of Agency Cost per
Agency 2010 Population Sworn Staff 1,000 population Fund Expenditure General Fund Capita
Office of the Sheriff 154,708 176' 1.14 $74.0 million 33.0% N.A.
Antioch 102,372 119 1.16 24.9 million 73.0% $243
Brentwood 51,481 62 1.26 16.0 million 45.1% 311
Clayton 10,897 11 1.01 1.8 million 50.0% 168
Concord 122,067 152 1.25 41.6 million 58.6% 341
Danville 42,039 31 0.74 7.5 million 42.2% 182
EI Cerrito 23,549 43 1.83 9.4 million 35.7% 400
Hercules 24,060 23 0.96 7.0 million 36.0% 292
Kensington CSD 5,077 10 1.97 2.1 million2 NA 415
Lafayette 23,893 16 0.67 4.1 million 43.1% 172
Martinez 35,824 37 1.03 10.1 million 52.5% 283
MoraQa 16,016 11 0.69 2.0 million 32.8% 125
Oakley 35,432 28 0.79 7.3 million 59.4% 207
Orinda 17,643 14 0.79 4.0 million 40.7% 229
Pinole 18,390 28 1.52 6.5 million 53.1% 355
Pittsburg 63,264 75 1.19 20.1 million 63.9% 318
Pleasant Hill 33,152 40 1.21 9.7 million 52.7% 292
Richmond 103,701 181 1.75 62.9 million 51.5% 606
San Pablo 29,139 56 1.92 14.1 million 73.7% 485
San Ramon 72,148 58 0.80 10.2 million' 27.1% 141
Walnut Creek 64,173 76 1.18 22.4 million 36.9% 353
Total or Average 1,049,025 total 1,241 total . 1.18 average $357.7 million total 48% average $296 average
Notes:
1. Patrol and Investigation-related - does not include Contracts, Administrative Services, Coroner, Custody, or Support Services.
2. Includes expenditures from all sources of District funds.
3. Does not include CSA M-29 revenues.
52
Table 3-2: Service Indicators
Revisions indicated in bold underline type.
Agency Service Calls per Violent Property Total Crimes per Violent Crimes Property Crimes Response
Calls' Capita Crimes2 Crimes2 1,000 population Clearance Rate Clearance Rates Time -1'
Office of the Sheriff 425,000 2.7 590 2,085 17.3 29% 35% 8:39
Antioch 85,200 0.8 877 2,219 30.2 47% 46% 19% 8% 8:00
Brentwood 38,000 0.7 124 631 14.7 47% 56% 14% 14% 4:44
Clayton 7,450 0.7 8 105 10.4 62% 62% 8% 15% 1:30
Concord 122,300 1.0 438 2,593 24.8 39% 16% 12:15
Danville 35,000 0.8 22 290 7.4 42% 6% 5:36
EI Cerrito 10,500 0.5 155 570 30.8 35% 15% 4:45
Hercules 23,300 1.0 58 300 14.9 35% 9% 5:00
Kensington CSD 5,000 1.0 4 64 13.4 44% 65% 2% 17% 2:45
Lafayette 21,400 0.9 24 317 14.3 23% 5% 4:50
Martinez 28,200 0.8 123 703 23.1 23% 4% 7:30
Moraga 3,100 0.2 11 112 7.7 40% 6% 2:05
Oakley 36,165 1.0 88 452 15.2 49% 9% 3:47
Orinda 16,200 0.9 11 177 10.7 39% 5% 5:33
Pinole 29,750 1.6 119 452 31.0 37% 52% 16% 16% 3:20
Pittsburg 72,200 1.1 202 1,526 27.3 37% 36% 10% 10% 6:08
Pleasant Hill 20,800 0.6 115 607 21.8 43% 12% 4:45
Richmond 110,600 1.1 1,136 3,674 46.4 16% 5% 6:11
San Pablo 26,500 0.9 308 1,113 48.8 28% 10% 4:30
San Ramon 57,700 0.8 51 552 8.4 45% 7% 7:08
Walnut Creek 37,000 0.6 122 1,422 24.1 44% 43% 9% 15% 2:25
Total or Average 1,208,365 0.9 avg. 4,586 20,684 21.1 avg. 38.3% avg. 10.6% avg. 5:19 avg.
Notes:
1. Average number of calls per year over past three years.
2. Average number of crimes per year over past three years.
3. Response time for Priority 1 calls in progress in minutes and seconds.
4. Violent Crime and Property Crime Clearance Rates in regular type indicates DOJ data.
Violent Crime and Property Crime Clearance Rates in bold type indicates local agency data.
53
Law Enforcement MSR
on crime prevention, and developed crime prevention tips published monthly in the local paper.
The Department takes full advantage of electronic communication systems such as "Fax Blast" to
release information and alerts to the media and community.
If a constituent has a complaint regarding the Department or its employees, complaint forms
are available at the front counter of the police station. Complaints are also taken by phone, by
email, or directly by any member of the Department. Complaints are then forwarded via command
staff to the Chief. The Chief serves as the person directly responsible for addressing all complaints.
The Department did not provide the exact number and type of complaints received in 2007. 2008,
and 2009.
Antioch PD demonstrated partial accountability and transparency by cooperating with LAFCO
requests for information, documents and interviews during the MSR process.
Planning and Management Practices
In FY 10-11, the City budget approved 173.7 positions for the Antioch PD, of which .J+.>
~
117.5 were sworn staff and 56.2 were support staff. Authorized positions may not correlate
directly with positions by type as reported by the Department due to part-time employees, or
vacant or frozen positions. The Department operates under two basic functions, the Field Services
Division (which includes Dispatch, Patrol, Community Policing and Traffic), and the Support
Services Division (which includes Administration, Investigations, Narcotics, Records, and Animal
Control Services). The captain of each of those divisions reports to the Chief. The Chief holds
regular meetings with his command staff internally, and attends meetings with other department
heads, the City Manager, and with the City Council.
In 2006, the Chief initiated a reorganization of the Antioch PD using strategic planning and
community policing programs as the principal methods of providing improved delivery of police
services to the community. The process began with a series of meetings with businesses and local
neighborhoods. Feedback received from the community and from members of the department
resulted in adoption and implementation of a program consisting of six basic goals or tenents for
department operations, focusing on 1) leadership and relationships, 2) communication, 3) staffing,
4) reducing crime,S) juvenile issues, and 6) public education.
The City's approach to monitoring workload and performance varies by department. In the PD,
all employees are evaluated annually. Department performance is reviewed routinely using
internal CAD and RMIS systems that permit data to be evaluated on crimes and other calls for
services using a program called CRYSTAL. Community poliCing teams hold meetings weekly to
evaluate community or beat problems, and reports initiated either by members of the community
or by the officers themselves. Finally, two lieutenants are charged with the responsibility of
evaluating poliCies and procedures. They use the Lexipol System to research successful best
practices information submitted by other police agenCies.
The Department's performance is also evaluated yearly in its annual report, every three years
during the strategic plan update, and annually during the budget process. The City's General Plan
outlines the need for additional performance evaluations, including 1) an annual assessment of the
adequacy of facilities and services serving Antioch, which would address personnel and staffing
needs, and capital needs, based on antiCipated growth and the level of service standard, and 2) have
POST undertake an analysis of the Antioch Police Department's staffing needs.
Planning documents that guide Antioch PD's services are the departmental strategic plan and
the City's General Plan. The strategic plan is updated every three years and outlines specific goals,
strategies to accomplish those goals and a timeline to complete each task. While the City adopts a
City ofA ntioch
Service Adequacy
Adequacy of law enforcement services can be evaluated based on a number of elements. For
the purposes of this report, services provided by Antioch PD are assessed according to response
times, clearance rates (the portion of crimes solved) and staffing ratios.
Although police response times for serious crimes in progress are an important indicator of
service adequacy, there are not clear standards as to what that response time should be. Police
response times were traditionally used to measure effectiveness. However, more recent research
indicates that response time does not have a significant effect on crime-solving, because most
crimes are "cold" crimes and victims do not tend to call police immediately after the crime is
committed. The modern approach to response time-differential response- is to ensure quick
response to serious crimes (Priority 1) in progress, when there are opportunities to save a victim
and/or to apprehend the criminal. and to inform lower-priority callers (Priority 2 through 6) that
response time may be lengthy. Experiments indicate that differential response leads to both citizen
and officer satisfaction.' Response times are dependent on the agency's staffing level and size of
the jurisdiction served. Antioch PD on average responds to Priority 1 incidents within 5eVefI
miRlites aRa 21 seE8Ras eight minutes, while law enforcement providers countywide averaged five
minutes and 4419 seconds for Priority 1 incidents.
Cleared crimes refer to offenses for which at least one person was arrested, charged with the
offense, and turned over to the District Attorney for prosecution. A crime is also considered cleared
by exceptional means if the offender dies, the victim refuses to cooperate, or extradition is denied.
There are no standards or guidelines on the proportion of crimes that should be cleared. As shown
in Figure 4-4, Antioch PD had a clearance rate of 47 percent for violent crimes (homicide, forcible
rape, robbery and aggravated assaUlt) committed in 2007, 2008 and 2009, and a clearance rate of
19 percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400)
during the same period. Local clearance data indicates a 46 percent clearance rate for violent
crimes and an eight percent clearance rate for property crimes during this period. By comparison,
providers countywide on average cleared 38.3 percent of violent crimes and 10.6 percent of
property crimes, meaning Antioch PD solves a significantly larger portion of both violent crimes
and property crimes within its jurisdiction thaR the as compared to the average of other providers
in the County. ,.
The number of sworn officers per capita is a traditional indicator of service level. There are no
established State or national standards for police staffing levels. Staffing ratios in Contra Costa
ranged from 0.67 sworn staff per 1,000 residents in Lafayette to 1.97 in Kensington PP&CSD.
Antioch PD is slightly below the countywide average of 1.18 sworn staff per 1,000 residents, with a
sworn staff to resident ratio of 1.1.6..
51 Walker and Katz. 2002.
10 Clearance roHes for all agencies provided by the California State Department of Justice. Criminal Justice Statistics Center and arc
based on (he number of cleared crimes as reported by each agency. In the case, of agency's that conlnlCI for services from the
Sheriffs Office, c1ean..xl crimes are reported by the Sheriffs Office, not the City. Clearance cates as reported by the agency may differ
depending on the agency's definition of a cleared crime. An offense is cleared or "solved" for crime reporting purposes to the State
when at least one person is anestcd, charged with the commission of lhe crime, and turned over to the court for prosecution or
referred 10 juvenile authorities. In certain situations a clearance may be counted by "exceptional means" when the police definitely
know the identity of the offender, have enough information 10 support an arrest, and know the location of the offender bur for some
reason cannot take the offender inro custody.
65
City a/Brentwood
l
EC'ity of Brentwoo_d __
The City of Brentwood provides a range of municipal services, including law enforcement
services within the city limits. This chapter focuses solely on the City's law enforcement services
germane to this report. LAFCO adopted a sub-regional MSR covering all services provided by the
cities in the eastern portion of the County. For general information on the City and related
determinations refer to this MSR.
Basic information on the Brentwood Police Department is contained
in the East Contra Costa County Sub-regional MSR adopted by the
Commission on December 12,2008. (www.contracostalafco.org)
Agency Overview
Background
The City of Brentwood is a general law city, which was incorporated in 1948. Its boundary area
is approximately 14.8 square miles (land only). The City's SOl encompasses two adjacent
unincorporated areas, one in the northeast and one in the southwest. (Refer to Map 5-1)
I
Accountability and Governance
Local accountability and governance can be measured using a variety of factors. This MSR
focuses on several variables, including the decision making process, visibility and accessibility,
community outreach and education, and customer service.
The City operates under a City Council-City Manager form of government. The Chief of Police ~
Mark Evenson, who serves as the department head for the Police Department (PD) and reports to
the City Manager. The City does not have a law enforcement-related advisory commission or
committee.
Constituent outreach efforts are aimed at crime prevention, education about the Department's
activities, and involving constituents in police efforts. Activities in the City include: R.A.V.E.
(Reducing Adolescent Violence Education); Neighborhood Watch; Red Ribbon Week (anti-drug
education program); Vacation Watch; Tell-A-Cop (anonymous phone number); Operation
Identification (identification engraving program); Community Introduction Program; and Every 15
Minutes (drunk driving education for high school students). The Department sponsors an Explorer
Post program which teaches different aspects of law enforcement to youth possibly interested in a
career in police work. Additionally, the Department takes part in Triad - a national community
polling initiative wherein law enforcement professionals, seniors and community groups partner to
meet the crime-safety needs of seniors. The Department makes crime statistics and other
information available on its website.
If a constituent has a complaint regarding the Department or its employees, complaint forms
are available online. The Department tracks complaints by using a distinct numbering system.
Complaints are reviewed by the Professional Standards Unit. The Chief acts as the ombudsman by
reviewing all complaints and the action taken to address the issue by the Professional Standards
Unit. For the Brentwood PD, in 2007 there were three complaints in which one was unfounded and
Law Enforcement MSR
two were not sustained: in 2008 there were five complaints in which one was sustained. two were
exonerated. and two were unfounded: and in 2009 there were seven complaints in which three
were unfounded. three were exonerated. and one was not sustained.
Brentwood PO demonstrated full accountability and transparency by cooperating with all
LAFCO requests for information, documents and interviews during the MSR process.
Planning and Management Practices
Per the City's FY 10-11 budget, the PO has 80.5 authorized full time equivalent (FTE) positions
of which 62.0 are sworn officers and 18.5 are support personnel. Authorized positions may not
correlate directly with positions by type as reported by the Department due to part-time
employees, or vacant or frozen positions. The Department is supplemented by a volunteer program
that presently has approximately 15 volunteers, a volunteer chaplain program, and an Explorer
Scout program.
The Department is divided into two divisions: Field Operations and Support Services. The Field
Operations Division command staff consists of a Captain who oversees the Field Operations
Division, two Field Lieutenants who are the day and evening Watch Commanders, six Field teams
that are responsible for patrol and calls for service, the Traffic Safety Unit, the School Resource
Officers assigned to the schools, the K-9 Unit, the Field Training Officer Program, Community
Service Officers deployed in the field as support staff, and a SWAT Team. The Support Services
Division is commanded by a Captain and has two Bureaus, Administration and Investigations, each
directed by a Lieutenant The Administration Bureau responsibilities include records, emergency
services, recruiting and hiring, training, special projects, special event coordination, financial
accounting, and crime prevention services. The Investigations Bureau responsibilities include
major crimes and special operations investigation units, city planning liaison, the property unit, and
the Chaplain's program. The captain of each division reports to the Chief.
The Chief holds regular meetings with his command staff internally, and attends meetings with
other department heads, the City Manager and with the City Council.
The guiding goals of the Brentwood PO are: 1) maintaining a full staffing level; 2) implementing
a traffic safety emphasis program; 3) establishing a report writing capacity from the field; 4)
expanding crime prevention efforts; 5) expanding city wide emergency preparedness training; and
6) streamlining department efficiency and operations.
Sworn officers are evaluated annually. New staff are evaluated after 18 months of a probation
period. The Department puts together an annual crime and services report as well as a crime
report to the State, which tracks the workload of the Department as a whole. The Department's
performance is evaluated yearly in its annual report and biennially during the budget process. The
Department also conducts an annual benchmark report to evaluate public safety services in the
City. The City Council has adopted four benchmark indicators to monitor the Police Department's
ability to provide quality police services to the residents of 8rentwood. These benchmarks are: 1)
response times; 2) incidents of crime and crime rates; 3) workload; and 4) clearance rates. These
benchmarks are analyzed on an annual basis and assist in determining appropriate staffing
requirements for the Police Department. The first such benchmarking report was completed in
2008. The 2011 Benchmark Report demonstrated acceptable results in the four criteria indicated
above, and that staffing is sufficient at the present time.
In order to improve efficiencies, the Department is working to streamline the workload and
eliminate duplication of efforts. Examples of these efforts include initiation of an enhanced booking
program and reconfiguration of beats to meet demand.
City a/Brentwood
Although police response times for serious crimes in progress are an important indicator of
service adequacy, there are not clear standards as to what that response time should be. Police
response times were traditionally used to measure effectiveness. However, more recent research
indicates that response time does not have a significant effect on crime-solving. because most
crimes are "cold" crimes and victims do not tend to call police immediately after the crime is
committed. The modern approach to response time-differential response-is to ensure quick
response to serious crimes (Priority 1) in progress, when there are opportunities to save a victim
and/or to apprehend the criminal, and to inform lower-priority callers (Priority 2 through 6) that
response time may be lengthy. Experiments indicate that differential response leads to both citizen
and officer satisfaction.1I Response times are dependent on the agency's staffing level and size of
the jurisdiction served. Brentwood PO on average responds to Priority 1 incidents within four
minutes and 4{) 44 seconds, while law enforcement providers countywide averaged five minutes
and 4412. seconds for Priority 1 incidents.
Cleared crimes refer to offenses for which at least one person was arrested, charged with the
offense, and turned over to the District Attorney for prosecution. A crime is also considered cleared
by exceptional means if the offender dies, the victim refuses to cooperate, or extradition is denied.
There are no standards or guidelines on the proportion of crimes that should be cleared. As shown
in Figure 5-4, Brentwood PO had a 001 clearance rate of 47 percent for violent crimes (homicide,
forcible rape, robbery and aggravated assaUlt) committed in 2007, 2008 and 2009, and a clearance
rate of 14 percent for property crimes (burglary, motor vehicle theft, and thefts of greater than
$400) during the same period. Local clearance data indicates a 56 percent clearance rate for violent
crimes and a 15 percent clearance rate for property crimes during this period. By comparison,
providers countywide on average cleared 38.3 percent of violent crimes and 10.6 percent of
property crimes, meaning Brentwood PO solves a significantly larger portion of both violent and
property crimes within its jurisdiction than the average of other providers in the County.
12
The number of sworn officers per capita is a traditional indicator of service level. There are no
established State or national standards for police staffing levels. Staffing ratios in Contra Costa
ranged from 0.67 sworn staff per 1,000 residents in Lafayette to 1.97 in Kensington PP&CSD.
Brentwood PO is above the countywide average of 1.18 sworn staff per 1.000 residents, with a
sworn staff to resident ratio of 1.26.
II Walker and Katz, 2002
11 Cleamncc rates for all agencies provided by the California State Department of Justice, Criminal Justice Sratistics Center and arc
based on the number of cleared crimes as reponed by L'"ach agency. In the case, of agency's that contract for services from the
Sheriff's Office, cleared crimes are reporred b)' the Sheriffs Office, not the City. Clearance rotes as reported by the agency may differ
depending on the agency's definition of a cleared crime. An offense is cleared or "solved" for crime reporting purposes to the State
when at least one person is acrcstcd, charged with the commission of the crime. and rurned over to (he court for prosecution or
referred to juvenile authorities. In certain situations a clearance may be counted b)' "exceptional means" when the police definitely
know the identiry of the offender, have enough infomlation to support an arrest. and know the location of the offender but for some
rcason cannot take the offender into custody.
75
Law Enforcement MSR
Service Adequacy
Adequacy of law enforcement services can be evaluated based on a number of elements. For
the purposes of this report, services provided by Clayton PD are assessed according to response
times, clearance rates (the portion of crimes solved) and staffing ratios.
Although police response times for serious crimes in progress are an important indicator of
service adequacy, there are not clear standards as to what that response time should be. Police
response times were traditionally used to measure effectiveness. However, more recent research
indicates that response time does not have a significant effect on crime-solving, because most
crimes are "cold" crimes and victims do not tend to call police immediately after the crime is
committed. The modern approach to response time-differential response-is to ensure quick
response to serious crimes (Priority 1) in progress, when there are opportunities to save a victim
and/or to apprehend the criminal, and to inform lower-priority callers (Priority 2 through 6) that
response time may be lengthy. Experiments indicate that differential response leads to both citizen
and officer satisfaction. Response times are dependent on the agency's staffing level and size of the
jurisdiction served. Clayton PD on average responds to Priority 1 incidents within one minute and
30 seconds, while law enforcement providers countywide averaged five minutes and 19 seconds for
Priority 1 incidents.
Cleared crimes refer to offenses for which at least one person was arrested, charged with the
offense, and turned over to the District Attorney for prosecution. A crime is also considered cleared
by exceptional means if the offender dies, the victim refuses to cooperate, or extradition is denied.
There are no standards or guidelines on the proportion of crimes that should be cleared. As shown
in Figure 6-4, Clayton PD had a DOl clearance rate of 62 percent for violent crimes (homicide,
forcible rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance
rate of eight percent for property crimes (burglary, motor vehicle theft, and thefts of greater than
$400) during the same period. Local clearance data indicate the same percent clearance rate for
violent crimes, but a 15 percent clearance rate for property crimes during this period. By
comparison, providers countywide on average cleared 38.3 percent of violent crimes and 10.6
percent of property crimes, meaning Clayton PD solves a Significantly larger portion of violent
crimes within its jurisdiction, and a higher property crimes than the average of other providers in
the County.
13
The number of sworn officers per capita is a traditional indicator of service level. There are no
established State or national standards for police staffing levels. Staffing ratios in Contra Costa
ranged from 0.67 sworn staff per 1,000 residents in Lafayette to 1.97 in Kensington PP&CSD.
Clayton PD is below the countywide average of 1.18 sworn staff per 1,000 residents, with a sworn
staff to resident ratio of 1.01.
I) Clearance rates for all agencies provided by the California Statc Department of Justice. Criminal Justice Statistics Center anti arc
based on the number of cleared crimes as reported by each agency. In the case, of agency's rhat contract for services from rhe
Sheriff's Officc, cleared crimes ace reponed by thc Sheriffs Office, not the City. Clearance rates as reported by thc agency may differ
depending on thc agency's definition of a cI{:aced crime. An offense is cleared or "solved" for crimc reporting purposes to the State
when at least one person is arrested, charged with rhe commission of the crime, and turned over to the court for prosecution or
referred to juvenile authorities. In certain situations a clearance may be counted by "exceptional means" when the police definitely
know the identity of the offender, have enough information to suppOrt an arrest, and know the location of lhe offender but for some
reason cannot take the offender into custod},.
84
Town of Danville
Financing
The Department's services are financed primarily through the General Fund (98 percent) and
augmented by two Special Revenue Funds - the Donations and Contributions Fund and the Public
Safety Fund. The Donations and Contributions Fund tracks contributions for selected programs,
such as the police K-9 program and the school resource program. Revenues for law enforcement
activities from this fund were $345,009 in FY 09-10. The Public Safety Fund tracks special revenues
for police programs, including SLESF funds provided by the State ($3,518 FY 09-10), Abandoned
Vehicle Abatement ($23,460 FY 09-10) and Asset Seizure ($10,968 in FY 09-10). Revenues are
collected from police fees and fines ($250,992 in FY 09-10) and are considered General Fund
monies.
Figure 8-1: DanviUe PD Expenditures (FYs 08, 09, & 10)
Expenditures over the last three
$8,000,000
fiscal years have increased slightly each
year, as shown in Figure 8-1. Police $7,000,000 -- -- -
Services increased a net of $143,289
$6,000,000
(2%) in FY 09-10, reflecting higher
expenses for contract costs with the $5,000,000 - -- - -, ~
Contra Costa County Sheriffs
Department. $4,000,000 ~
In FY 09-10, the expenses for the $3,000,000 --------' I ~
Department were patrol (65 percent), $2,000,000 - r--
management and community services
(15 percent), investigations (nine $1,000,000 - ~
percent), the school resource program
$0
(six percent), animal control (three
FY 07-08 FY 08-09 FY 09·10
percent), and disaster preparedness
(two percent).
The Town does not have any long-term debt related to law enforcement activities.
The Town participates in the Municipal Pooling Authority (MPA), a joint powers agreement
between nineteen cities, which provides insurance coverage for liability, auto, property and
workers' compensation claims.
Law Enforcement
Nature and Extent
The Police Department is responsible for providing law enforcement services in the Town,
including crime prevention, parking and traffic control, investigations, community awareness, and
investigations. The Department is responsible for community policing, but does not have a Special
Weapons and Tactics (SWAT) Team. The Town provides law enforcement functions with sworn
personnel from the Sheriffs Office by contract. Danville controls the specifics of delivery of law
enforcement services in the Town. Danville PD, as a result of the contract with the County Sheriffs
Office, utilizes many of the County's available services such as dispatch, SWAT and forensics.
Similar to other city police departments, the Department also relies on the Sheriffs Office for
search and rescue services and long-term holding facilities. Danville contracts with County Animal
Control for animal control services. The Town relies on the Walnut Creek PD for bomb squad
services. Danville is a member to an agreement with the City of San Ramon, San Ramon Valley Fire
Law Enforcement MSR
Protection District and San Ramon Valley Unified School District to collaborate on improving the
emergency preparedness of the San Ramon Valley community.
The Sheriffs Department also provides safety services within the Town by responding to a
Town of Danville "critical incident" in which a request has been made for "mutual aid."
Danville PD also provides law enforcement services to the unincorporated portion of the Alamo
Springs Subdivision through County Service Area M-30. Refer to CSA M-30 in Chapter 23 for
details.
Patrol
Danville PD patrols 18.3 square miles (including CSA M-30) which are divided into three beats.
These beats are established based on empirical statistical data reflecting calls for service, combined
with landmark and/or natural boundary characteristics. A fourth beat may be needed if new areas
annex and are developed. There are five teams which operate during different times of the day and
week - Monday through Thursday is day shift from 6:00 AM to 4:00 PM (three officers and one
sergeant), swing shift from 3:00 PM to 1:00 AM (three officers and one sergeant), and graveyard
from 9:00 PM to 7:00 AM (two officers and one sergeant); and Friday through Sunday is day shift
from 6:00 AM to 6:30 PM (three officers and one sergeant), and graveyard from 6:00 PM to 6:30 AM
(three officers and one sergeant). Bicycle patrol is utilized for the downtown area, trails, and parks.
Foot patrol is utilized for community events.
Staffing
Figure 8-2: Danville PO Staffing Levels
Over the last three FYs (09, 10,
11), unlike most other city police
1 1 1
departments, Danville has been
o o o
able to maintain stable staffing
levels with little variation from 1 1 1
year to year. (Refer to Figure 8-2.) 1 1 1
17 18 18
Currently, the Department
determines staffing levels based 1 1 1
upon meeting the annually Services Officer 3 3 3
adopted performance objectives I "','off,; " Control Officer 3 3 3
Danville PD presently employs o o o
Records Specialist
0.67 sworn officers per capita, and o o o
Support Staff
has been able to maintain its
27 28 28
sworn force.
Location
Danville PD provides services throughout the Town's territory plus the unincorporated portion
of the Alamo Springs Subdivision. In addition, the PD provides services outside its boundaries
through mutual aid agreements. These joint mutual aid agreements include: 1) the California Law
Enforcement Mutual Aid Plan; and 2) the County Wide Mutual Aid Program, which is a countywide
agreement to provide law enforcement services to any other provider when needed. The
Department does not have any automatic aid agreements with other providers.
The Department did not identify any areas within the Town's boundaries that are particularly
challenging to serve.
102
1
City a/Hercules
]
110.
City ofH ercules
The City of Hercules provides a range of municipal services, including law enforcement services
within the city limits. This chapter focuses solely on the City's law enforcement services germane to
this report. LAFCO adopted a sub-regional MSR covering all services provided by the cities in the
western portion of the County. For general information on the City and related determinations
refer to this MSR.
Basic information on the Hercules Police Department;s contained in
the West Contra Costa County Sub-regional MSR adopted by the
Commission on November 18,2009. (www.contracostalafco.org)
I
Agency Overview
Background
The City of Hercules is a general law city, which was incorporated in 1900. Its boundary area is
apprOXimately 7.6 square miles (land only). The City's SOl encompasses one adjacent
unincorporated area to the north along State Highway 4. (Refer to Map 10-1.)
I
Accountability and Governance
Local accountability and governance can be measured using a variety of factors. This MSR
focuses on several variables, including the decision making process, visibility and acceSSibility,
community outreach and education, and customer service.
The City operates under a City Council-City Manager form of government. The Interim Chief of
Police is William Goswick who was appointed in December 2010. The Chief of Police serves as the
department head for the Police Department (PD) and reports to the City Manager. The City has a
Public Safety and Traffic Subcommittee. The committee consists of two council members and one
representative each from the Police Department, Planning Department and Engineering
Department.
Constituent outreach efforts are aimed at crime prevention, education about the Department's
activities, and involving constituents in police efforts. Activities in the City include the Explorer
Program, Neighborhood Watch, Business Watch, and emergency notifications through e-mail to
residents. The Department sponsored Explorer Program is designed to incorporate experience in
several areas, including life skills, career training. learning through service (volunteering),
character education, and leadership experience. Additionally, the Department's notification service,
operated by NixIe, provides alerts and updates to residents who sign up for the service through the
website. The Department makes crime statistics and other information available on its website.
If a constituent has a complaint regarding the Department or its employees, complaint forms
are available online. Complaints are filed and reviewed with the administrative sergeant. The
Department did not provide the exact number and type of complaints received in 2007, 2008, and
2009, but estimated that about six complaints are received annually.
Hercules PD demonstrated full accountability and transparency by cooperating with LAFCO
requests for information, documents and interviews during the MSR process.
1117
Law Enforcement MSR
I
Planning and Management Practices
As of June 2011, the Department is operated by 26 personnel, of which 23 are sworn officers
and three are support personnel. The number of authorized positions is not reported in the City's
current budget For FY 09-10 the Department was allocated 39.0 full time equivalent (FTE)
positions of which 32.0 FTE were sworn officers and 7.0 FTE were support personnel. The
Department is supplemented by four reserve officers and 25 Explorers.
The Department is divided into two divisions: J2atFal Operations and Administration. An acting
Commander (Sergeant) oversees the J2atFal Operations Division, which consists of four patrol teams
that conduct community policing. emergency services, Explorers and parking enforcement. Team A
includes one school resource officer. The Administration Division is managed by an acting
Commander (Sergeant) and has three sections -Records/Services, Training and Investigations. The
Administration Division responsibilities include records, emergeR~' serviEes, recruiting and hiring.
training, special projects, special event coordination, financial accounting, and crime prevention
services. The commander of each division reports to the Chief.
The Chief holds regular meetings with his command staff internally, and attends meetings with
other department heads and with the City Council. The Chief has weekly meetings with the City
Manager.
Specific agency goals and objectives are set on a yearly basis by Hercules PD administration
with the input of department employees. These goals and objectives are not outlined in a document
such as a strategic plan or the budget. The Department reported that long-range planning is an
ongoing process which has been facilitated by staff meetings and team-building workshops.
Sworn officers are evaluated annually. New staff are evaluated after 18 months of a probation
period. The Department's performance is evaluated yearly in its annual report and annually during
the budget process. Daily activity reports are also generated by the Department and made available
for viewing by the public. Due to staff reductions, the daily logs are no longer available on the
website, but are available at the Department in hard copy.
Planning documents that guide Hercules PD's services are the City's 1998 General Plan, the
departmental policy manual and the departmental mission statement. The City is currently
updating its General Plan Housing Element.
General Plan Service Standards for police are as follows:
• Office and supporting facilities shall be provided in a central, headquarters faCility.
Communication equipment (including repeater stations) shall be provided to allow
communication between dispatch and police units throughout the service area, and
• Expanded police facilities will be planned as needed to serve new development within the
city limits and the sphere of influence.
The Department does not have adopted standards regarding ratio of officers per 1,000
residents or response times.
Financial planning documents include the annual budget and capital improvement program.
The City's capital improvement program is a multi-year planning program, included in the annual
budget, for the construction of new facilities and infrastructure, and for the expansion,
rehabilitation, or replacement of City-owned assets. The Engineering Division develops, manages,
and implements the capital improvement program for the City and Redevelopment Agency. The
City's existing plan is for the period FY 10-11 to FY 14-15, and consists of 72 projects, none of which
are related directly to law enforcement services.
City o/Hercules
l Financing
In FY 09-10, the operating costs of the Police Department were entirely financed by the City's
General Fund. The Community Development Fund financed $127,500 of capital improvements to
the police wing of the City Hall in FY 09-10. This fund accounts for property development tax
revenue collected per residential unit to finance acquisition, construction and furnishing of public
buildings, parks and recreational facilities. The City also maintains separate funds for grants from
government and public sources that are to be used to cover expenditures for providing public
services and improving public safety, as well as for revenue received from the State for its Citizen
Option for Public Safety (COPS) Program to fund police officer positions. These monies are
transferred into the General Fund for use by the Department. In FY 09-10, these funds contributed
$458,600 to the General Fund. Additionally, the Department may receive financing from the Police
Facilities Development Impact Fee (01 F) Fund; however, no funds were allocated to law
enforcement expenditures from this fund in FY 09-10.
Figure 10-1: Hercules PD Expenditures (FYs 08, 09, & 10)
Expenditures over the last three
$8,000,000 ,----------------
fiscal years have steadily increased,
+---------,
as shown in Figure 10-1. In FY 09- $7,000,000
10, the primary expenses for the
$6,000,000
Department were $5,609,712 (79%)
for Salaries and Benefits, $1,132,454
$5,000,000
(16%) for Services and Supplies, and
$332,642 (5%) for Allocated $4,000,000
Expenses. Patrol accounted for 66%
$3,000,000
of the total PD costs, with
Administration and Investigations
$2,000,000
accounting for 34%.
$1,000,000
The City had approximately
$14.9 million in long-term debt at
$0
the end of FY 09-10, none of which FY 07-08 FY 08-09 FY 09-10
was related to law enforcement
services.
The City engages in joint financing arrangements related to insurance. The City is a member of
the Municipal Pooling Authority, a joint powers authority, for liability and workers compensation
insurance.
Law Enforcement
Nature and Extent
The Police Department is responsible for providing law enforcement services in the City,
including crime prevention, parking and traffic control, community awareness, search and rescue,
and investigations. The Department is responsible for community policing and has a Special
Weall9Rs aRa Taeties (SWAT) Response Team that is limited to High Risk Entries and barricaded
subjects. The PD relies on the SO for all other SWAT situations. The Department also conducts
community outreach and education. Hercules PD is also involved in the East Bay Regional
Communication System and collaborates with other providers in the region for Incident Command
System (ICS) training. The Department hosted a regional ICS training to coordinate county
response to a large-scale critical incident.
Law Enforcement MSR
The Department relies on the Sheriffs Office for search and rescue services, crime lab services,
and long-term holding facilities, County Animal Control for animal services, Walnut Creek PD for
bomb squad services, and the City of Pinole for police dispatch services. While the City provides
search and rescue and SWAT services, the Sheriffs Office provides support when necessary.
The Sheriffs Department also provides safety services within the City by responding to a City of
Hercules "critical incident" in which a request has been made for "mutual aid."
Hercules PD does not provide contract services to other agencies.
Patrol
Hercules PD patrols 7.6 square miles, which are divided into two beats. Each beat is patrolled in
two 12-hour shifts. A single officer staffs each beat patrol vehicle. Traffic enforcement is conducted
by one Traffic Officer in a vehicle. supplemented by two dual purpose motorcycles when staffing
permits, plus a bike patrol. allgR'!eRts JlatFsl staffiRg WSR'! G:QQ AM ts 4 :QQ PI4.
Staffing
Figure 10-2: Hercules PD Staffing Levels
ORe S'NSFR sfficeF JlssitisR was
eliR'!iRated aRe! SRe SIIJlJlSR JlssitisR
added iR FY Q9 lQ. In the 10-11
2 2
Fiscal Year, the Hercules PD was
forced to re-structure the 6 6
Department due to budget cuts. Detective 3 3 2
(Refer to Figure 10-2.) This Officer 20 20
included the loss of four police
Control Officer 1 1 0
officers, neighborhood watch
on~ ist 1 1
coordinator, two parking
Office Support Staff 1 1 3
enforcement assistants, one
equipment coordinator. and one Resource Officer 0 0
office assi~t!!!lt. 35 35
The Department's staffing levels are normally determined based on how many positions can be
financed by up to 47 percent of the General Fund revenues, which the Department is allocated each
year. For FY 09-10, the Department utilized 36 percent of total General Fund revenues. Hercules
PD presently employs 0.96 sworn officers per 1,000 population, down from 1.37 in FY 09-10.
Location
Hercules PD provides services throughout the City's territory, and in addition, provides services
outside its boundaries through mutual aid agreements. The City participates in the County Wide
Mutual Aid Program, which is a countywide agreement to provide law enforcement services to any
other provider when needed. The Department does not have any automatic aid agreements with
other providers.
The Department identified two areas within the City's boundaries that are particularly
challenging to serve - near the golf course, due to longer response times, and along the railroad
tracks near the foothills.
Town o/Moraga
~3. Town ofM oraga
The Town of Moraga provides a range of municipal services, including law enforcement services
within the town limits. This chapter focuses solely on the Town's law enforcement services
germane to this report. LAFCO adopted a sub-regional MSR covering all services provided by the
cities in the central portion of the County. For general information on the Town and related
determinations refer to this MSR.
Basic information on the Moraga Police Department is contained in
the Central Contra Costa County Sub-regional MSR adopted by the
Commission on September 9,2009. (www.contracostalafco.org)
Agency Overview
Background
The Town of Moraga is a general law city, which was incorporated in 1974. Its boundary area is
approximately 9.5 square miles. The Town's SOl encompasses one adjacent area in the southeast.
(Refer to Map 13-1.)
I
Accountability and Governance
Local accountability and governance can be measured using a variety of factors. This MSR
focuses on several variables, including the decision making process, visibility and accessibility,
community outreach and education, and customer service.
The Town operates under a Town Council-Town Manager form of government. The Chief of
Police is Robert Priebe. who serves as the department head for the Police Department (PD), and
reports to the Town Manager. The Town does not have a law enforcement-related advisory
commission or committee.
Constituent outreach efforts are aimed at educational programs, community poliCing.
enforcement programs, and traffic calming programs. The Town publishes a Quarterly newsletter
("Moraga Town Crier") with articles from the PD, and to wlliEII the Chief contributes !Q a bi-weekly
EolYmR newsletter ("About Town"). The PD maintains a website separate from the Town website,
where regular crime alerts are posted, crime statistics and program information are made available,
and crime reports and complaints can be submitted. Programs that the PD uses to interact with and
educate constituents include: the Healthy Choices program to promote alcohol and drug awareness
to students and parents; the cadet program to allow youth to explore the field of law enforcement;
the Neighborhood Watch program; aRB reglliar programs at two seRioF Eare faEilities. and the
Lamorinda Alcohol Coalition. The PD has plans to expand its cadet program in the near future. The
Department reported that traffic safety is a top priority for the PD, and in the last few years it has
made use of "speeding letters" as a way to remind people to slow down. If a driver is clocked at a
speed above the limit, the license plate is recorded and the driver is sent a reminder to stay within
the legal limits. The PD reported that this educational effort has been successful at generally
reducing speeding throughout the Town; but loss of staff (Community Services Officer) has
suspended the program.
Law Enforcement MSR
If a constituent has a complaint regarding the Department or its employees, complaint forms
are available online. Complaints may also be submitted via phone or in person. All complaints are
filed directly with the Chief. The Chief acts as the ombudsman by reviewing all complaints and
taking action if required. For the Moraga PD, in 2007 there was one complaint which was
exonerated; in 2008 there was one complaint which was not sustained; and in 2009 there was one
complaint which was not sustained.
Moraga PD demonstrated full accountability and transparency by cooperating with all LAFCO
requests for information, documents and interviews during the MSR process.
Planning and Management Practices
The Moraga Police Department has 12.5 authorized FTEs in FY 10-11, or 11 sworn officers and
1.5 full-time equivalent (FTE) support staff. The PD is supplemented by four reserve officers, three
cadets, and one volunteer Community Services Officer. The sworn personnel are the Chief of Police,
one Lieutenant, t\Y8 Sergeants, one Sergeant and seveR eight Patrol Officers. Reserve Officers and
Cadets volunteer their time to the department The Assistant to the Chief manages the front desk
and administrative duties, and a part time records clerk enters information into department
computers.
The Department operations include three divisions: Administration, Operations, and Support
Services. Administration includes the Chief of Police and lieutenant, who oversee and manage the
Department The Operations division consists of field services and patrol. Support Services include
clerical and other duties, including maintaining the property room, parking enforcement, and
maintenance of vehicles and equipment.
The Chief holds regular meetings with his command staff internally, and acts as a
representative to the Town Manager and Town Council.
Goals are identified yearly during the annual budget process based on anticipated staffing and
resource levels. Goals adopted by the Department in the FY 10-11 budget include:
• Attain and retain full staffing of sworn personnel;
• Re-establish the detective position;
• Expand volunteer programs;
• Relocate all property and evidence from the Hacienda;
• Update EOC assignments, train new staff in their roles and responsibilities, and conduct
a simulated disaster exercise;
• Improve internal work flow efficiency, by creating an office for administrative assistant;
• Install and integrate new interoperability radio system;
• Continue review of archived records and purge according to the records retention
schedule; and
• Review current hiring and retention practices to develop a five-year plan to ensure
continued service and leadership.
The Department lost one officer so was unable to meet the first goal. It will also be a few
months before the Detective position can be filled. The Department was able to expand its
volunteer program, relocated all property and evidence, and improve internal work flow. The new
interoperable radios were purchased and installed. The EOC assignments were up dated and new
Town o/Moraga
staff were trained, but the simulated disaster exercise did not occur. Moraga PD also continued to
purge records, and reviewed hiring and retention practices.
Sworn officers are evaluated annually. New staff are evaluated after 18 months of a probation
period. The Department puts together an annual crime and services report, as well as a crime
report to the State, which tracks the workload of the Department as a whole. The Department's
performance is evaluated yearly in its annual report and annually during the budget process. The
Department's annual crime report includes minimal benchmarking of staffing levels with other law
enforcement providers in the County.
In order to improve efficiencies, the Department is making efforts to maximize workload and
minimize overtime. The Department recently adopted new work schedules-3 shifts of 12 hours
and 4 shifts of 12 hours-to help reduce overtime costs. The Department reported that this has
resulted in improvements in service and lowered costs through a reduction in overtime. The
Department reported a need to enhance staffing levels in order to further improve efficiency;
specifically, there is a need for a new detective position. ~S aSllble as a Right S€ mmaRaeF .
Planning documents that guide Moraga PD's services are the Town's 2002 General Plan, the
Town's annual budget and the Department's mission statement.
General Plan Service Standards for police are as follows:
Maintain a three-minute response time for all life threatening calls and those involving
o
criminal misconduct. Maintain a seven-minute response time for the majority of non
emergency calls.
Provide police services to maintain the peace, respond to localized emergencies and
o
calls for service, and undertake crime prevention within the Town.
Encourage the placement of residential and business addresses so that they can be
o
easily seen from the street.
o Develop guidelines for the design and €itiHg siting of buildings to reduce the
opportunity for crime, and apply such considerations in the review of development
proposals. Provide related information to the public to educate them on the benefits of
appropriate home designs and other preventive steps to reduce crime in their
neighborhood.
Participate, to the extent feasible, in programs relating to multi-jurisdictional disaster
o
preparedness and cooperate with the County Office of Emergency Services and other
appropriate agencies to revise and update the Town's Disaster Preparedness Plan.
Moraga PD currently ases RS~ meet,:, the adopted response time standard for Priority 1 calls,
bll~ FeS!lSRaS wi~RiR ¥aIlF miRII~es. with a two minute and five second average response time.
Financial planning documents include the annual budget. The Town does not maintain a
separate capital improvement plan for police services, but instead plans for capital improvements
in the annual budget
Population and Growth Projections
According to the 2010 Census, the population of the Town is 16,016. Over the last 10 years, the
population of Moraga has declined by approximately two percent.
The Town has maintained a low growth rate over the last four decades. According to the Town,
annual growth rates of approximately 0.5 percent are expected to continue until Town build-out.
Town oiMoraga
There are approximately 863 acres of undeveloped land within the Town, which is not
designated as open space and is available for development."
Based on ABAG projections, the Town is anticipated to grow by 14 percent over the next 25
years. By comparison, the median city in Contra Costa is anticipated to experience 17 percent
growth over the same time period, while the countywide growth is anticipated to be 21 percent.
ABAG projects that the Town's population will be 18,900 in 2035.
In order to address any increase in demand as a result of population growth, the PD would
likely need additional sworn staff, considering that Moraga PD has one of the lowest levels of
staffing in the County, as discussed further in the Service Adequacy section.
The Department is invited to comment on any proposed developments. Growth strategies
related to law enforcement in the Town include performance standards adopted as part of the
Town's General Plan as indicated above.
At the present time, there is one area outside of the town limits but inside its SOl that could
potentially be annexed and served. (Refer to Map 13-1.) This is an area adjacent and east of
Sanders Ranch Road and Camino Pablo and is currently vacant.
There are no unincorporated islands within the Town Limits.
FinanciTlg
Similar to other municipalities, the Town of Moraga faces declining revenues and budget
cutbacks. The Police Department has been forced to reduce staffing levels by eliminating one police
officer and a half-time community services officer position in FY 10-11. Additionally, police
vehicles have historically been purchased through the Town's Asset Replacement Fund; however,
contributions to the Asset Replacement Fund have been deferred and the Town is depleting this
fund without replenishing it, which could mean further cutbacks in new equipment and vehicles.
The Department's services are financed primarily through the General Fund (97 percent) and
augmented by three special revenue funds. The Citizens Options for Public Safety (COPS) Fund
receives financing from the State's COPS program to be used to support police activities, and may
include funding for additional officers. Financing for the Traffic Safety Fund comes directly from
traffic fines and forfeitures. It has historically been used only for capital purchases for the Police
Department. Beginning in FY 08-09 these funds were used to support the activities in the General
Fund that related to police equipment and operational costs, and are not accounted for separately
in the Town's financial statements. The Asset Replacement Fund is used for equipment purchases
in various departments for the Town. In FY 10-11, the COPS fund accounted for $!>d,Ii4!>
approximately $135,000, and accrued monies from the Asset Replacement Fund accounted for
approximately $53,645 of PD expenditures for major equipment purchases sf aJlJlrs)[imately
$B!>,ggg were maae that year (interoperable radios and two patrol vehicles). wsm aeemea mSRies
iR the Asset Rej3laeemeRt FHRa. Other law enforcement revenues, which are considered General
Fund monies, include charges for police services ($62,879 in FY 09-10) and the Town's public
safety sales tax ($50,620 in FY 09-10).
}J COl/1m Cosla L4FCO, enllm! Conlm CosIo COllllr)' SlIb-regiollOI MSR, 2009.
151
Law Enforcement MSR
Figure 13-1: Moraga PD Expenditures (FYs 08, 09, & 10)
PD expenditures over the last
$3,000,000
three fiscal years have declined by
approximately 20 percent, as shown
$2,500,000
in Figure 13-1. A breakdown of
actual police department
expenditures by type was not $2,000,000 -
available in the Town's audited
financial statement for FY 09-10. $1,500,000 - !--
Based on the FY 09-10 budget,
expenses were planned to consist of $1,000,000 - f--
administration (31 percent), patrol
services (60 percent), support
$500,000 - -
services (seven percent), and
depreciation (two percent).
$0
The Town does not have long FY 07-08 FY 08-09 FY 09-10
term debt related specifically to law
enforcement services.
Moraga takes part in the Municipal Pooling Authority joint powers authority, formerly Contra
Coast Municipal Risk Management Insurance Authority (CCMRMIA), for risk management coverage.
Law Enforcement
Nature and Extent
The Police Department is responsible for providing law enforcement services in the Town,
including crime prevention, parking and traffic control, community awareness, investigations,
hazard mitigation. and emergency preparedness training. Moraga PD is also involved in the East
Bay Regional Communication System and the Contra Costa Mobile Field Force.
The Department relies on the Sheriffs Office for SWAT, search and rescue services, and long
term holding facilities; County Animal Control for animal services; and the City of Walnut Creek for
bomb squad services. Additionally, the Town contracts with the Sheriffs Office for dispatch and lab
services.
The Sheriffs Department also provides safety services within the Town by responding to a
Town of Moraga "critical incident" in which a request has been made for "mutual aid."
The Town participates in a joint powers agreement with the East Bay Regional Parks District
Police Department to provide primary response and investigation for misdemeanor crimes
committed on East Bay Regional Parks District parks within the Town. The Town of Moraga also
provides back-up to the East Bay Regional Parks District police for more serious crimes committed
on park property, such as shootings and other felonies. Moraga PD provides law enforcement
services to St. Mary's College which is within the Town Limits, including criminal
investigations/reports.
Patrol
Moraga PD patrols 9.5 square miles, which are divided into two beats. There are two officers on
duty at all times. Officers work three 12-hour shifts one week followed by four 12-hour shifts the
following week (total of 84-hours per two-week period).
152
1
Town ofM oraga
Staffing
Figure 13-2: Moraga PD Staffing Levels
Over the last three FYs (09, 10,
ll), two sworn officer positions
and one community service officer
position have been eliminated. Detective 1 1
Consequently, the PD has been Police Officer 11 10
forced to rely more on police o
Community Service Officer 1 0.5
cadets for non-sworn and
Office Support Staff 1.5 1.5 1.5
administrative duties. (Refer to
15.5 14 12.5
Figure 13-2.)
Currently, the Department determines staffing levels based on available financing during the
annual budget process. There is an emphasis on traffic enfer€ement ~ in the Town;
consequently, Moraga PD maintains sufficient staffing to have two officers on duty at all times.
Location
Moraga PD provides services throughout the Town's territory, and in addition, provides
services outside its boundaries through mutual aid agreements. These joint mutual aid agreements
include: 1} the Contra Costa Mutual Aid Mobile Field Force which provides police services of all
types for calls to other counties on request; 2} the County Wide Mutual Aid Program, which is a
countywide agreement to provide law enforcement services to any other provider when needed;
and 3} the IMPACT Team, which provides response to serious traffic collisions throughout the
County. The Department does not have any automatic aid agreements with other providers.
The Department reported that the open space areas that are adjacent to the Town pose a
challenge to providing quick response and law enforcement services. East Bay Regional Park
rangers assist Moraga PD in these areas.
Infrastructure
Moraga PD operates out of a police headquarters at 329 Rheem Blvd. The police headquarters
is located in one wing of the Rheem Administration Building which was extensively remodeled in
2005, and is considered to be in very good condition. The Department reported that there is more
than adequate space at the facility to provide room to expand. The PD shares the building with the
Planning Department, Town Clerk and Town Manager.
The town plans to remodel the Rheem building to make it usable for mUltiple City departments
and a Council Chamber, and eventually move all town departments except Parks and Recreation
there, turning the building into Moraga's town hall and leaving the Hacienda (where the remaining
Town staff is presently located) as a community center. The project is currently in the design phase
with construction scheduled for the Spring of 2012. The remodel will not affect the PD wing of the
bUilding.
The Department did not report any needs related to vehicles or equipment. The Department
replaced two patrol vehicles in FY 10-11. While vehicles and equipment are not kept within a
secure area, the parking lot has video cameras for surveillance.
City of Oakley
[14. City of Oakley
The City of Oakley provides a range of municipal services, including law enforcement services
through a staffing contract with the County Sheriffs Office (SO). This chapter focuses solely on the
City's law enforcement services germane to this report. LAFCO adopted a sub-regional MSR
covering all services provided by the cities in the eastern portion of the County. For general
information on the City and related determinations refer to this MSR.
Basic information on Oakley law enforcement services is contained in
the East Contra Costa County Sub-regional MSR adopted by the
Commission an December 12, 2008. (www.contracostalafco.org)
Agency Overview
Background
The City of Oakley is a general law city, which was incorporated in 1999. Its boundary area is
approximately 16.1 square miles. The City's SOl extends beyond the City's boundaries in two areas
in the northeast quadrant. (Refer to Map 14-1)
Accountability and Governance
Local accountability and governance can be measured using a variety of factors. This MSR
focuses on several variables, including the decision making process, visibility and accessibility,
community outreach and education, and customer service.
The City operates under a City Council-City Manager form of government. The Chief of Police is
Bani Kollo, who is a contract employee through a contract with the County Sheriffs Office (SO), and
who was appOinted in September of 2010. The Chief, as the department head for the Police
Department (PD), reports to the City Manager during weekly meetings. The City does not have a
law enforcement-related advisory commission or committee.
Constituent outreach efforts are aimed at crime prevention, education about the Department's
activities, and involving constituents in police efforts. The Chief is responsible for police media
releases. The Chief, who was appointed in September 2010, is currently engaged in reviewing
poliCies and procedures that relate to community outreach, and is meeting personally with various
public groups. The City distributes a quarterly newsletter entitled "The Oak Leaf' to residents, and
also maintains a website to keep the community informed regarding programs and activities. Two
officers have been assigned the task of enhancing quality of life and community concerns.
Community law enforcement activities include a Traffic Safety Program, a School Resource Officer
Program, a Problem Oriented PoliCing component, a Neighborhood Watch Program, and vacation
watch aRa arHRlmR aFiYiRg eaHEatisR reF AigA sEAssl stliaeRts.
The Department uses a formal complaint procedure developed by the Sheriffs Office, and may
receive complaints from the city website, e-mail, phone, or directly at the front desk of the
Department. The Department does not have an ombudsman as the Chief is responsible for
disposition of all complaints via the chain of command. For the Oakley PD, in 2007 there were two
complaints in which one was unfounded and one was exonerated; for 2008 there were three
157
1
Law Enforcement MSR
complaints, two were unfounded and the other was exonerated; and in 2009 there were two
complaints in which one was not sustained and the other was frivolous.
Oakley PD demonstrated full accountability and transparency by cooperating with all LAFCO
requests for information, documents and interviews during the MSR process.
Planning and Management Practices
The City of Oakley operates under a contract with the Sheriffs Office for law enforcement
services. The contract is reviewed annually by the City Manager and the SO. The Police Chief is a
Sheriffs Lieutenant approved by the City Manager and City Council to perform the duties of Police
Chief in the City. All sworn members of the Department are deputy sheriffs of appropriate rank
assigned full-time to the City to perform police services. The Department uses procedures and
policies approved by the Sheriff. aRa moaifiea by the Chief to meet the Reeas aRa reEtYiremeRts of
the City. Non-sworn personnel, including the assistant to the Chief, administrative assistants, and
police services assistants, are employees of the City.
Per the City's FY 10-11 budget, the Police Department has 31.75 authorized full time equivalent
(FTE) positions, 28.0 of which are sworn personnel and 3.75 are support staff. Authorized
positions may not correlate directly with positions by type as reported by the Department due to
part-time employees, or vacant or frozen positions. The Department is supplemented by five active
reserve police officers, and two volunteers. Currently, staffing levels are determined by the City
Council after reviewing recommendations received from the Chief and City Manager. The SO
submits a formal contract for the cost of police services based upon the number of personnel
approved by the Council.
Currently, the Department does not have an organizational chart that depicts management
reporting practices or span of control. The Chief reported that he is seeking to iRsrease adjust the
span of control in his agency by aaaiRg adjusting responsibilities.
Goals and objectives for the Police Department are established by the City Manager and Chief.
The Chief holds quarterly staff meetings with department supervisors to gather pertinent
information used in making decisions. He also maintains close communications with the City
Manager and interfaces with his superiors and administrators from the Sheriffs Department
routinely.
Oakley PD follows the three times per year employee evaluation procedures developed by the
Sheriffs Office. Staff workload is not tracked by the Department. Workload of the Department as a
whole is tracked in an annual crime and services report and a crime report to the State compiled by
Department staff. The Department's performance is evaluated yearly in its annual report and
annually during the budget process. The Chief holds meetings with his supervisors quarterly
concerning department operations, reviews his city budget semi aRRyally monthly and contract
payments monthly. Additionally, the degree to which established goals and objectives have been
achieved is reviewed annually during a meeting with the City Manager.
Planning documents that guide Oakley PD's services are the City's 2020 General Plan (which
was adopted in 2002), the City's Emergency Operations Plan, and a departmental mission
statement. While the General Plan has seven adopted policies regarding law enforcement, none are
specific service standards such as response times or staffing levels. General Plan policies related to
law enforcement are as follows:
• Police patrol beats shall be configured to assure minimum response times and efficient use
of resources.
\158
Law Enforcement MSR
Financing
Oakley PD reported that the current financing level is adequate to maintain delivery of essential
police services; however, due to the recession, the police services budget is very limited. To date,
the Police Department has not suffered from personnel reductions. alit Has elimiRatea its s\3eEialty
\39siti9Rs. In order to stay within budget and minimize costs, overtime is carefully controlled by the
Chief, and patrol vehicle maintenance is carefully supervised by a SergeaRt the Assistant to the
Chief to control purchasing and maintenance of all rolling stock. Police protection constituted 28
percent of the City's governmental expenditures in FY 09-10 and 58 percent of the City's General
Fund.
The Department's services are financed primarily through the General Fund (66 percent) and
augmented by the P-6 Special Tax Fund, the Supplemental Law Enforcement Services Fund (SLESF),
and Redevelopment funds, which all together accounted for 34 percent of total PD funds in FY 09-
10. The P-6 Fund is where the City accounts for the City's police services special tax, all of which is
budgeted to augment general fund resources in funding the Police Department budget. The police
services special tax is a voter approved special tax levied by the City and collected at the same time
and in the same manner as property taxes, which is to be used exclusively for Public Safety. In FY
09-10, P-6 funds constituted $2.18 million of law enforcement related revenues. The SLESF is
where the City accounts for Supplemental Law Enforcement Grants from the State, such as the State
COPS program funds. SLESF revenues contributed $100,000 to law enforcement activities in FY
09-10. Revenues are also collected from charges for services (two percent), such as vehicle
abatement, and are considered General Fund monies.
Figure 14-1: Oakley PD Expenditures (FYs 08, 09, & 10)
The City pays the Sheriffs Office for
$8,000,000 .,----------------
contract services based on the number
+-------
of staff provided. In FY 09-10, the City $7,000,000
paid approximately $5.9 million to the
$6,000,000
County for police department staffing
and forensic and support services. $5,000,000
Support costs, capital costs and
$4,000,000
administrative costs, such as non
sworn staff, vehicles and maintenance
$3,000,000
costs, are paid directly by the City,
which constituted 14 percent of law $2,000,000
enforcement expenditures in FY 09-10.
$1,000,000
Expenditures over the last three
$0
fiscal years have been relatively stable,
FYOHl8 FY 08-09 FY 09-10
and in fact, actually increased in FY 08-
09, as shown in Figure 14-l.
The City does not have any long-term debt related to law enforcement services.
The City is a member of the MuniCipal Pooling Authority of Northern California. The Authority
provides coverage against various types of loss risks under the terms of a joint powers agreement
with the City and several other cities and governmental agencies.
162
1
City a/Oakley
Law Enforcement
Nature and Extent
The Police Department is responsible for providing law enforcement services in the City,
including crime prevention, parking and traffic control, community awareness, and investigations.
The City provides law enforcement functions with sworn personnel from the Sheriff's Office by
contract. Oakley controls the specifics of delivery of law enforcement services in the City. Part of
this local control provides for the selection of personnel, uniforms, and police car markings;
consequently, the Police Department is an independent city police operation under city control.
Specialized functions such as Special Weapons and Tactics (SWAT) Team and forensics are
provided by the Sheriff's office as part of the contract services. Oakley PD is also involved in the
East Bay Regional Communication System.
Similar to many other cities, the Department relies on the Sheriff's Office for Search and Rescue
services, dispatch and long-term holding facilities, County Animal Control for animal services, and
the City of Walnut Creek for bomb squad services.
The Sheriff's Department also provides safety services within the City by responding to a City of
Oakley "critical incident" in which a request has been made for "mutual aid."
Oakley PD does not provide contract services to other agencies.
Patrol
Oakley PD patrols 16.1 square miles which are divided into three beats. Patrol shifts regularly
consist of three officers with one supervisor, except for the weekday morning shift, which consists
of two officers with one supervisor in the field.
Staffing
Figure 14-2: Oakley PD Staffing Levels
IR I'Y Hl 11 Oalaey PI) has reaucea
its staff aue te Buaget ceRstraiRts. IR
sraer te maiRtaiR Basic flatrel services, o
the I)eflartrReRt has elimiRatea its o o
DetectiYes, K 9 efficer, CsmmuRity
24 24 22
Ser'lices Officer, Traffic CeRtrel Officer,
1 1
aRa Schesl Ressurce Officer. For FY
o
10-11 Oakley PD has been able to mmunity Service Officer 2 1
retain its specialty positions and LTr,tt'ir Control Officer 2 2
currently has two Detectives, two Support Staff 2 2 4
Traffic Control Officers, two Problem 8(;!!"'UI Resource Officer 1 1
Oriented Police (POP) Officers. one 35 34
School Resource Officer, and one K-9
Officer. (Refer to Figure 14-2.) The Department also has 14 regular patrol officers.
According to the City's budget, there is a staffing goal of 1.1 sworn staff to 1,000 population
served. Oakley PD presently employs 0.79 sworn officers per capita, which is below the City's
staffing goal.
Location
City a/Pinole
116. City a/Pinole
The City of Pinole provides a range of municipal services, including law enforcement services
within the city limits. This chapter focuses solely on the City's law enforcement services germane to
this report. LAFCO adopted a sub-regional MSR covering all services provided by the cities in the
western portion of the County. For general information on the City and related determinations
refer to this MSR.
Basic information on the Pinole Police Department is contained in
the West Contra Costa County Sub-regional MSR adopted by the
Commission on November 18, 2009. (www.contracostalofco.org)
I
Agency Overview
Background
The City of Pinole is a general law city, which was incorporated in 1903. Its boundary area is
approximately 5.3 square miles (land only). The City's SOl encompasses two adjacent
unincorporated areas on the southwest edge of the City on the east and west side of Interstate 80.
(Refer to Map 16-1.) These are further described under Population and Growth Projections, below.
Accountability and Governance
Local accountability and governance can be measured using a variety of factors. This MSR
focuses on several variables, including the decision making process, visibility and accessibility,
community outreach and education, and customer service.
The City operates under a City Council-City Manager form of government. The Chief of Police,
as the department head for the Police Department (PD), reports to the City Manager. John
Hardester is the Chief of Police, who was appointed in April 2011 to replace retiring Chief Paul
Clancy. The City does not have a law enforcement-related advisory commission or committee.
Constituent outreach efforts are aimed at crime prevention, education about the Department's
activities, and involving constituents in police efforts. The Department places a particular emphasis
on community policing. THe geparRReRt Has a C91RR'HIRity Preservati9R aRd l>afety YRit (CPl>Y),
'IIHiH€ 'l/9rl.s iR partRersl!ip witl! tl!e 9€ 1RlRHR ity t9 eRHaRe€ tHe !€Hality 9f life iR tHe City By
ilRpr9'1iRg safety aRd relR9'1iRg BligHt. A part-time Community Safety Specialist and a half-time
Corporal oversee 9€ de eRfere€ lReRt, the Neighborhood Watch Program and related newsletter,
webcasts on crime prevention strategies, the Youth Academy, National Night Out, the Crime Free
Multi-housing Program, business alerts, criminal/sex offender registration, and a parent handbook
on child safety. Other programs within the PD include a liaison program with senior citizens, and
an Explorer program which teaches different aspects of law enforcement to youth possibly
interested in a career in police work. The Pinole "Police Blotter" is a weekly listing that contains
selected crimes and incidents that occur in Pinole. This service is available on the department's
website and can also be viewed daily on Pinole Cable Channel 28. THe gepartIReRt als9 lRaiRtaiRS a
9€ IHIRR iR tHe 19a€ l Re'Nspaper t9 iRferlR aRd Hpdate 9€ RstirueRts . The Department makes crime
statistics and other information available on its website.
Law Enforcement MSR
If a constituent has a complaint regarding the Department or its employees, the complaint may
be submitted bye-mail. phone or in person. All complaints are referred to the Chief for review and
follow-up action. For the Pinole PD, in 2007 there were 11 complaints in which one was sustained;
for 200B there were 10 complaints, none of which were sustained; and in 2009 there were 12
complaints in which two were sustained.
Pinole PD demonstrated full accountability and transparency by cooperating with all LAFCO
requests for information, documents and interviews during the MSR process.
I
Planning and Manallement Practices
Per the City's FY 10-11 budget, the PD has 42.0 authorized full time equivalent (FTE) positions
of which 28.0 are sworn officers and 14.0 are support personnel. Authorized positions may not
correlate directly with positions by type as reported by the Department due to part-time
employees, or vacant or frozen positions. The PD is supplemented by six volunteers and 12 scouts
in the Explorer Scout program.
The Department is divided into three divisions - Field Operations, Investigations and
Community Preservation, and Support Services. Commanders oversee the Field Operations and
Investigations Divisions, while a services manager oversees the Support Services Division. Both
commanders and the services manager report to the Chief, who in turn reports to the City Manager.
The Field Operations Division provides patrol. response to calls, and traffic safety services. The
Investigations Division is comprised of three units - Investigations, Inspection and Control. and
Community Preservation and Safety. Support Services include dispatch, records, property and
evidence, and front office operations.
The Chief holds regular meetings with his command staff internally, and attends meetings with
other department heads, the City Manager and with the City Council.
Current and long range goals are established by the Department as part of the fiscal planning
process during development of the city budget. Additionally, the Department developed goals and
action items as part of a team building workshop conducted by the California Commission on Peace
Officer Standards and Training in 2010.
The guiding goals of the Pinole PD are: 1) prevent and control conduct widely recognized as
threatening to life and property; 2) aid individuals who are in danger of physical harm; 3) protect
constitutional guarantees; 4) facilitate the movement of people and vehicles; 5) assist those who
cannot care for themselves; 6) resolve conflict, whether among individuals, groups or individuals
and government entities; 7) identify problems that have the potential for becoming intrusions in
the community; B) create and maintain a feeling of security in the community; and 9) develop and
implement strategies and programs which enhance delivery of police service in the community.
Sworn officers are evaluated annually. New staff are evaluated after an lB-month probation
period. The Department puts together an annual crime and services report as well as a crime
report to the State, which tracks the workload of the Department as a whole. The Department's
performance is evaluated yearly in its annual report and annually during the budget process. The
Department does not perform any benchmarking or comparison of its services to other law
enforcement providers.
In order to reeuee O€ sts, imflFe'le enhance efficiencies, aRe reeuee eemaRe SR staffiRg
reS8urees, and to improve security and enforcement efforts, the Department is 'llsrlsRg t8 miRimize
8'1ertime aRe has installed surveillance cameras at a senior center and in the Fitzgerald Avenue
area.
178
1
City a/Pinole
Planning documents that guide Pinole PD's services are the City's 2010-2030 General Plan,
which was updated in October 2010, the Department's mission statement, and a statement of the
Department's core values.
General Plan Service standards and policies for police services are as follows:
• Pinole will strive to maintain capital facilities, equipment and staffing to maintain a five
minute response time for emergency calls.
• The Police Department will work in partnership with citizens and community organizations
to expand community-based crime prevention programs.
Pinole PD sees Ret presently meet;>. the General Plan response time standard with an average
Priority 1 response time of three minutes and 20 seconds. The PD has semeRstmtes ashereRce te
the seceRs staRsars threugh the CemmuRity PreservatieR aRs Safety URit (CPSU).
The City's financial planning efforts include annual budgets, annual financial audits, and capital
improvement plans. The City's most recent audit was completed for FY 09-10. The capital
improvement plan was most recently updated in FY 10-11. Annually, the City and Redevelopment
Agency (RDA) review and update an expenditure plan for capital projects and programs that
support City and RDA goals and objectives. The first year of the CIP is an actual budget year and the
remaining four years are projections. The FY 10-11 CIP is fully funded with existing cash on hand.
With only a few exceptions, the remaining years of FY 11-12 through FY 14-15 are unfunded. The
City's current CIP consists of 15 projects, none of which are related directly to law enforcement
services.
I
Population and Growth Projections
According to the 2010 Census, the population of the City is 18,390. Over the last 10 years, the
population of Pinole has declined by three percent.
City growth is constrained with the city of Hercules to the northeast, San Pablo Bay to the west,
and open space defined by the Countywide voter approved ULL to the east. (Refer to Map 16-1.)
The City's General Plan indicates that population growth is expected to average less than 1 percent
per year for the foreseeable future. Though land use changes that increase development densities
would create incentives for higher growth rates, this growth is anticipated to be tempered by the
fact that most properties are already developed. Growth is anticipated to be limited to infill
redevelopment of sites, as the cost of maintaining and modernizing aging properties make
redevelopment to higher densities a more attractive alternative to continued maintenance.
Based on ABAG projections, the City is anticipated to grow by 33 percent over the next 25 years.
By comparison, the median city in Contra Costa is anticipated to experience 17 percent growth over
the same time period, while the countywide growth is anticipated to be 21 percent. ABAG projects
that the City's population will be 26,500 in 2035.
The City has not had to address increased demand for services as a result of population growth,
given the City's decline in population; however, growth in surrounding communities has placed a
much higher demand on transportation, which has resulted in increased congestion and a need for
enhanced traffic enforcement.
The Department is invited to comment on any development applications to evaluate any impact
on law enforcement and traffic enforcement activities. Growth strategies related to law
enforcement in the City include performance standards adopted as part of the Growth Management
section of the City's General Plan as indicated above.
Law Enforcement MSR
Financing
The City of Pinole's financing level is adequate to deliver services, but is not sustainable.
Financial pressures include the scheduled 2012 sunset of the City's utility users tax (a ballot
measure to extend the tax failed in 2010), the scheduled 2015 sunset of the City's redevelopment
project area spending authority, and cost inflation trends that exceed revenue projections. The City
adopted a three-year expenditure control budgeting plan in 2008 to implement cost reduction
strategies. The City's objective was to adapt without layoffs; to do so, the City financed general fund
operating deficits in FY 08-09 through FY 10-11 through a $2.3 million loan from the
redevelopment agency, and has offered voluntary severance packages. Due to these constraints, the
City's General Fund appropriations have declined by 16 percent between FY 07-08 and FY 11-12,
and the Police Department has reduced expenditures by $1.6 million or nearly 20 percent during
the same time period, which has resulted in the elimination of 15.8 FTE PD positions over that time
period.
Seventy percent of the Police Department's services are financed through the General Fund.
The City receives proceeds from the Proposition 172 special sales tax, which is restricted for use for
public safety services. These funds are initially tracked in a separate fund, but are transferred into
the General Fund for use. The remaining 30 percent of the Department's funding comes from the
following eight special revenue and non-major governmental funds (amount from these funds in FY
09-10 shown in parentheses):
• Police Security Fund - Reflects the reimbursement received from commercial enterprises
for police security services provided by the City, primarily for the Pinole Vista Shopping
Center and also the East Bluff Apartment Complex. ($42,343)
• Measure S Fund - This fund accounts for revenue from a special half-cent sales tax
approved in 2006 for public safety purposes. ($991,898)
• Police Grant Fund -The City has been awarded and has accepted a three year funding grant
($819,850) from the U. S. Department of Justice under the CHP (Cops Hiring Program)
program to be used for community oriented policing services. ($245,009)
• Traffic Safety Fund - This fund accounts for revenues from fines and forfeitures. ($15,024)
• Supplemental Law Enforcement Services Fund - This fund accounts for State allocations
received through the Citizens Option of Public Safety Program. The minimum allocation for
public agencies is $100,000, which is the amount which has been historically allocated to
Pinole. This amount and continuation of allocation of this State subvention is subject to the
discretion of the State Legislature and was Rat has been partially funded for 2011-12.
($103,006)
• Asset Seizure -Property seized during drug arrests is distributed either back to its owner or
sold and the proceeds divided up among the arresting and prosecuting agencies. Monies
shown as revenue in this category have been returned to the City at the culmination of
certain cases and can only be used for police activities. ($937)
• Growth Impact Fund - This fund receives fees from building activities and uses these funds
to offset costs associated with city growth. ($54,587)
• Redevelopment Agency Fund - This fund is used to account for major capital improvement
projects under the management of the City's Redevelopment Agency. ($802,851)
182
City a/Pinole
Figure 16-1: Pinole PD Expenditures (FYs 08, 09, & 10)
Expenditures over the last
$9,000,000 .,-----------------
three fiscal years have declined by
5.8 percent, from $8.1 million in $8,000,000
FY 07-08 to $7.7 million in FY 09-
$7,000,000
10, as shown in Figure 16-1. In FY
09-10, the primary expenses for $6,000,000
the Department were personnel
$5,000,000
(85 percent), supplies and
services (13.5 percent), capital $4,000,000
outlays (less than two percent).
$3,000,000
The City had approximately
$58.1 million in long-term debt at $2,000,000
the end of FY 09-10, none of
$1,000,000
which was related to law
enforcement services. $0
FY 07-08 FY 08-09 FY 09-10
The City engages in joint
financing arrangements related to insurance. The City is a member of the Municipal Pooling
Authority, a joint powers authority, for liability and workers compensation insurance.
I
Law Enforcement
I
Nature and Extent
The Police Department is responsible for providing law enforcement services in the City,
including crime prevention, parking and traffic control, community awareness, staff training, and
investigations. The Department conducts emergency preparedness in collaboration with the City of
Hercules. THe PsliEe bleJlartmeRt reEeRtly tsslE SR tHe resJlsRsillility sf Esee eRfarEemeRt. THe
Csee HRfaFEemeRt ei'lisisR eRfarEes a Rllmller sf laws JlertaiRiRg ts FesieeRtial JlFsJlerty witHiR tHe
Gityo Pinole PD is also involved in the East Bay Regional Communication System.
The Department relies on the Sheriffs Office for search and rescue services, the Special
Weapons and Tactics (SWAT) Team, and long-term holding facilities, County Animal Control for
animal services, and the City of Walnut Creek for bomb squad services. Pinole PD also contracts
with Contra Costa County Crime Lab for specialized services.
The Sheriffs Department also provides safety services within the City by responding to a City of
Pinole "critical incident" in which a request has been made for "mutual aid."
Pinole PD provides contract dispatch services to the City of Hercules. Additionally, the
Department provides twa three school resource officers in the local schools, through a partnership
with West Contra Costa County School District. The School District funds two SROs and the City
funds one SRO.
Patrol
Pinole PD patrols 5.3 square miles, which are divided into three beats - one on each side of 1-80
and one for the commercial area. There are four patrol teams to provide continuous patrol and
response to calls in these three areas.
183
1
City o/Pinole
• Expansion of the Property/Evidence Room and enhanced facilities to ensure safe storage of
material,
• Upgrades and/or changes to the computer-aided dispatch and records management system,
and
• Equipment upgrades to participate in the East Bay Regional Communication System, a Joint
Powers Authority QPA) established to improve inter-agency emergency communication.
There are no plans for significant capital improvements to the police facilities before 2015,
based on the City's capital improvement plan.
The Department did not report any needs related to vehicles or equipment. Vehicles and
equipment are kept within a secure area adjacent to the police building. The Department is
monitoring the mileage of patrol vehicles to insure that the fleet is 'rotated for use' by patrol
officers in order to evenly distribute the mileage, which extends their service life accordingly.
Service Demand and Service Adequacy
Each law enforcement agency has been evaluated using a number of factors. These factors are
indicated in Figure 16-4: Pinole Law Enforcement Profile. These profiles can be used to compare
between agencies, although exact comparisons are not always possible due to the differing
conditions and policing methods used. Refer also to Chapter 3: Law Enforcement Overview for
comparison tables.
Service Demand
Figure 16-3: Violent and Property Crimes (2007-2009)
During the last three 600 .,-----------------------
years, the annual number of
crimes and the number of 500 t----;;:::=:;;-----~==:_--------
crimes per capita have had a
downward trend. As shown 400 +-----...0
in Figure 16-3, while the
number of violent crimes 300 +------..:,
fluctuated over this time
200 +-----"
period, the number of
property crimes has declined 100
by almost 19 percent. Based
on the number of property o
and violent crimes between 2007 2008 2009
2007 and 2009, the City had
• Violent Crimes • Property Climes
approximately 31 reported
crimes per 1,000 residents, while providers countywide averaged 21 crimes per 1,000 residents.
The City averaged 12,7!Hl29.750 service calls per year in 2007, 2008 and 2009, which is ew 1,618
service calls per 1,000 residents. By comparison, service providers countywide averaged 1,500
service calls per 1,000 residents during the same time period.
The Department reported that there are no periods or events that have particularly high
demand for police services.
185
1
Law Enforcement MSR
Service Adequacy
Adequacy of law enforcement services can be evaluated based on a number of elements. For
the purposes of this report, services provided by Pinole PO are assessed according to response
times, clearance rates (the portion of crimes solved) and staffing ratios.
Although police response times for serious crimes in progress are an important indicator of
service adequacy, there are not clear standards as to what that response time should be. Police
response times were traditionally used to measure effectiveness. However, more recent research
indicates that response time does not have a significant effect on crime-solving. because most
crimes are "cold" crimes and victims do not tend to call police immediately after the crime is
committed. The modern approach to response time-differential response-is to ensure quick
response to serious crimes (Priority 1) in progress, when there are opportunities to save a victim
and/or to apprehend the crimina\' and to inform lower-priority callers (Priority 2 through 6) that
response time may be lengthy. Experiments indicate that differential response leads to both citizen
and officer satisfaction." Response times are dependent on the agency's staffing level and size of
the jurisdiction served. Pinole PO on average responds to Priority 1 incidents within three minutes
and 20 seconds, while law enforcement providers countywide averaged five minutes and 19
seconds for Priority 1 incidents.
Cleared crimes refer to offenses for which at least one person was arrested, charged with the
offense, and turned over to the District Attorney for prosecution. A crime is also considered cleared
by exceptional means if the offender dies, the victim refuses to cooperate, or extradition is denied.
There are no standards or guidelines on the proportion of crimes that should be cleared. As shown
in Figure 5-4, Pinole PD had a DOl clearance rate of 37 percent for violent crimes (homicide,
forcible rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance
rate of 16 percent for property crimes (burglary, motor vehicle theft, and thefts of greater than
$400) during the same period. Local clearance data indicates a 52 percent clearance rate for violent
crimes and a 16 percent clearance rate for property crimes during this period. By comparison,
providers countywide on average cleared 38.3 percent of violent crimes and 10.6 percent of
property crimes, meaning Pinole PD solves slightly less Significantly more violent crimes and
sigRiHEaRtly conSiderably more property crimes within its jurisdiction than the average of other
providers in the County.
JO
The number of sworn officers per capita is a traditional indicator of service level. There are no
established State or national standards for police staffing levels. Staffing ratios in Contra Costa
ranged from 0.67 sworn staff per 1.000 residents in Lafayette to 1.97 in Kensington PP&CSO.
Pinole PD is above the countywide average of 1.18 sworn staff per 1.000 residents, with a sworn
staff to resident ratio of 1.52.
19 \X'alkcr and Kat'".l, 2002.
30 Clearance rates for all agencies provided b), the California State Department of Justice, Criminal Justice Statistics Center and arc
based on the number of cleared crimes as reported b}, each agency. In the case, of agency's that contract for services from the
Sheriffs Office, cleared crimes are reported by the Sherifrs Office, not rhe City. Clearance rates as reported by lhe agency Illay differ
depending on the agency's definition of a cleared crime. )\n offense is cleared or "solved" for crime reporting purposes to the State
when at least one person is arrested, charged with the commission of the crime, and turned over to the court for prosecution or
referred to juvenile authorities. In certain situations a clearance may be counted by "exceptional means" when the police definitely
know rhe identity of the offender, have enough information to supporr an arrest, and know the location of the offender but for some
rcason cannot take the offender into custody.
186
County Service Areas
I
CSA pol, Zone B --Alamo
Alamo is a diverse community with a mix of residential, commercial and open space areas.
Alamo has been a candidate for incorporation on several occasions, with the latest effort in 2009.
At the March 2009 Special Election, incorporation was defeated with 35.6% voting 'Yes' and 64.4%
voting 'No.'
As a Census Designated Place (COP), Alamo is comprised of ;w,6 9.7 square miles and has a
2010 population of 14,570. Zone 8 of CSA P-2 consists of 5.3 square miles (J2. 55 % of the COP
area) with an estimated population of 7,618 (2,627 households at 2.9 persons per household). 80th
the P-2 Zone 8 area and the remainder of the Alamo COP (6& 45% of the COP area) are within
County Service Area P-6, the Countywide law enforcement services special district. CSA P-5 (Round
Hill) is within the Alamo COP, is adjacent to P-2 Zone 8, and is also within Countywide (SA P-6.
(Refer to the CSA P-5 and CSA P-6 sections of this report and Map 23-5.)
Accountability and Governance
There is a seven-member Advisory Committee for Zone 8 appointed by the 80ard, and includes
two members of the Alamo Municipal Advisory Council (MAC). The Committee meets monthly and
provides input to the 80ard and the SO on Alamo police service matters. Agendas and minutes are
posted at the SO Valley Station, 150 Alamo Plaza, Suite C, and on the web at www.alamore.org
(which is a private website owned and maintained by a local resident).
The Resident Officers assigned to Alamo share space at the SO Valley Station in the Alamo Plaza
Shopping Center.
Additional information may be obtained from the Finance Services Unit at the SO, or through
the Clerk of the 80ard and County Administrator.
Planning and Management Practices
CSA P-2, Zone 8 collects a portion of the 8asic 1% Property Tax Allocation from properties
within Zone 8 (currently 0.47878% on average for Tax Rate Area (TRA) 66015 and 0.48645% on
average for TRA 66009. These taxes generate approximately $142,000 per year for CSA P-2, Zone
8. Zone 8 also assesses properties in Zone 8 an annual assessment of $18 for residential property
and $54 for commercial property. These assessments generate approximately $65,000 per year.
These revenues (property taxes and property assessments) are utilized to provide enhanced law
enforcement services to properties within CSA P-2, Zone 8.
Properties within CSA P-2, Zone 8 are also within CSA P-6 (Countywide unincorporated area
except Kensington). (Refer to Map 23-3.) A number of CSA P-6 Zones (special assessment areas)
have been established throughout the P-6 territory, including within CSA P-2, Zone 8 territory. At
the present time there are 12 P-6 Zones within P-2 Zone 8 which are currently generating $40,486
in special assessment revenues per year for P-6. There is no indication that these Zone revenues
have been allocated to enhanced law enforcement services within CSA P-2, Zone 8.
CSA P-6 also collects a portion of the 8asic 1% Property Tax Allocation (currently 1.20573% on
average) from properties within CSA P-2, Zone 8 for 'basic' law enforcement services. This is
appropriate because the Resident Deputy assigned to Alamo obtains support from the local beat
Deputies when the Resident Deputy is not on duty. (Refer also to the CSA P-6 Section of this
report.)
CSA M-30 (Alamo Springs) is also within CSA P-2, Zone 8 and CSA P-6. A portion of the 8asic
1 % Property Tax Allocation for properties within CSA M-30 is allocated to CSA P-2, Zone 8 and to
CSA P-6. Developed residential properties within CSA M-30 are charged an annual assessment for
257
1
Law Enforcement MSR
County Service Area P-5
Background
County Service Area (CSA) P-5 CP' for Police) was formed in 1972 to provide financing for
'enhanced' police services in the form of Resident Deputies from the Contra Costa County Sheriffs
Office (SO) to the unincorporated community of Round Hill. The District was formed under the
provisions of California Government Code Section 25210 et seq.
CSA P-5 includes approximately 1.2 square miles (749-acres) and is located on the east side of
Alamo, east of Interstate 680 and north of Stone Valley Road. (Refer to Map 23-2.) Access to Round
Hill is from the 1-680/Stone Valley Road interchange and through a portion of the Alamo
community. Round Hill is a single-family residential area along with the Round Hill Country Club.
The current estimated population within the District is 1,764.
Accountability and Governance
Local accountability and governance can be measured using a variety of factors. This MSR
focuses on several variables, including the decision making process, visibility and accessibility,
community outreach and education, and customer service.
CSA P-5 is a 'dependent' special district in which the County Board of Supervisors (Board) is the
Board of Directors for the district. Administrative staffing for the District is provided by the Office
of the Sheriff, in particular, the Finance Services Unit of the Administrative Services Bureau, which
oversees the District budget process.
There is a seven-member Advisory Committee for CSA P-5 which meets monthly at the Round
Hill Country Club and provides input to the Board and the SO on Round Hill police service matters.
Agendas are posted at the SO Valley Station, 150 Alamo Plaza, Suite C, and on the web at
www.alamore.org (which is a private website owned and maintained by a local resident).
The Resident Officers assigned to Round Hill share space at the SO Valley Station in the Alamo
Plaza Shopping Center.
Additional information may be obtained from the Finance Services Unit at the SO, or through
the Clerk of the Board and County Administrator.
The Finance Services Unit demonstrated full accountability and transparency by cooperating
with LAFCO requests for information, documents and interviews during the MSR process.
Planning and Management Practices
Because the CSA is a special district, it does not have land use authority. Those responsibilities
lie with Contra Costa County. Round Hill can be considered a sub-area of Alamo, which is a larger
unincorporated community west of Round Hill.
A portion of the Basic 1% Property Tax (currently 3.22769% on average) is allocated to CSA P-
5, which currently generates approximately $201,250 of tax revenue per year. CSA P-5 also
assesses developed property within the district a special tax of $330 per residence, which currently
generates apprOXimately $242,550 per year.
Law Enforcement MSR
County Service Area M-29
Background
County Service Area (CSA) M-29 ('M' for Maintenance) was formed in 1996 to provide financing
for facilities and services in the Dougherty Valley Area. The CSA was formed as part of a 1994
agreement to settle litigation brought against the County and the developers in Dougherty Valley.
The objective was to enable the County to finance extended services for Dougherty Valley residents
and property owners at no extra cost to the County's General Fund and taxpayers outside of
Dougherty Valley. The District was formed under the provisions of California Government Code
Section 25210 et seq.
CSA M-29 includes approximately 9.34 square miles and is located in the easterly portion of San
Ramon and south to the Alameda-Contra Costa County Line. (Refer to Map 23-4.) Approximately
68% of the District territory is within the City Limits of the City of San Ramon, and 32% is within
the unincorporated area. The current estimate from the city includes 8,071 residential units and
166,200 square feet of commercial space. The current estimated population within the District is
22,610.
Accountability and Governance
Local accountability and governance can be measured using a variety of factors. This MSR
focuses on several variables, including the decision making process, visibility and accessibility,
community outreach and education, and customer service.
CSA M-29 is a 'dependent' special district in which the County Board of Supervisors (Board) is
the Board of Directors for the district. Staffing for the District is provided by the Special Districts
Unit of the Contra Costa County Department of Public Works. Revenues generated by the District
are administered by the Finance Division of the City of San Ramon Administrative Services
Department. There is no advisory committee established for this district.
The CSA is authorized to provide road maintenance, street landscaping. park maintenance, open
space maintenance, flood control, law enforcement services, and community facilities maintenance.
The District may also charge for city administration overhead costs. Recreation-related services
were addressed in the Recreation & Parks and Cemetery Municipal Service Review adopted by
LAFCO in April 2010. This Section concentrates on the law enforcement services funded by the
District.
Each year, as part of the city budget process, the San Ramon City Council approves an operating
budget for Dougherty Valley Maintenance. The Board subsequently approves the budget pursuant
to the 2005 Reimbursement Agreement as an agendized item at a regular Board of Supervisors
meeting. At the end of the fiscal year, the District reimburses the city for services performed in
Dougherty Valley.
There is no separate website for the CSA. Information may be obtained from the Special
Districts Unit of the Contra Costa County Department of Public Works or the Finance Division at the
City of San Ramon.
The Special District Unit demonstrated partial accountability and transparency, and the City of
San Ramon demonstrated full accountability and transparency by cooperating with LAFCO requests
for information, documents and interviews during the MSR process.
Law Enforcement MSR
The Special District Unit demonstrated partial accountability and transparency. and the Town
Manager's Office demonstrated full accountability and transparency by cooperating with LAFCO
requests for information, documents and interviews during the MSR process.
Planning and Management Practices
The CSA M-30 boundaries include only the unincorporated properties -- 42 of the 53 residential
lots within the Alamo Springs Subdivision. The other 11 residential lots are within the Town of
Danville. The CSA is 62% built-out (26 lots) with residential dwellings, while the remaining 38%
(16 lots) are vacant. Refer to Map 23-5 which shows the relationship between the District, the
Town of Danville and the other Police Protection CSA's.
Because the CSA is a special district, it does not have land use authority. Those responsibilities
are jointly shared between Contra Costa County and the Town of Danville through a Memorandum
of Understanding (MOU) developed when the subdivision was approved. Under the City-County
MOU, and in accordance with the CSA's formation approval, the County collects benefit assessment
revenue from developed lots within the CSA and transfers those funds to the Town of Danville (for
extended public services) and to CSA L-100 (now CFD 2010-1) (for street lighting services). Details
are presented in the Financing section below.
Residents within CSA M-30 are also within two other police protection special districts from
which they receive no services: CSA P-2, Zone B (Alamo area); and CSA P-6 (Countywide
unincorporated area except Kensington). (Refer to Map 23-5.)
In the case of CSA P-2, Zone B, 0.48549% of the Basic 1 % Property Tax is allocated to CSA P-2,
which is currently generating approximately $2,881 of tax revenue per year. CSA P-2, Zone B also
assesses developed property within CSA M-30 at $18 per parcel, which generates $468 per year.
Vacant parcels are not assessed.
For CSA P-6, 1.20573% of the Basic 1% Property Tax is allocated to CSA P-6, which currently
generates approximately $7,155 of tax revenue per year from CSA M-30 properties. CSA P-6, Zone
1802 also assesses property within the Alamo Springs Subdivision (including the 42 residential lots
in CSA M-30, plus the 11 residential lots in Danville, plus what appear to be four common/open
space parcels). This assessment generated $14,260 in FY 09-10, and will increase based on the Cost
of Living Index.
Two inconsistencies have been identified for CSA M-30:
1. Properties within CSA M-30 receive law enforcement services from the Town of
Danville, but are contributing property tax revenues (currently $10,036 per year) to
CSA P-2 and CSA P-6; and
2. Properties within CSA M-30 also contribute special taxes (assessments) (currently
$14,728 per year) to CSA P-2 and CSA P-6.
These contributions exceed the total revenue generated by CSA M-30 for its own services by
$2,081. Territory within CSA M-30 should be detached from CSA P-2 and CSA P-6. In addition, the
whole of Alamo Springs Subdivision (both city and unincorporated portions) should not be
included as a Zone within CSA P-6.
Population and Growth Projections
It is estimated that the current population within CSA M-30 is 70 (26 homes at 2.7 persons per
home). Population at full build-out will be approximately 113; although no new homes have been
built in the past three years, leaving 16 lots vacant.
Contra Costa County Sheriff
Figure 26-2: Unincorporated Communities
'/
I'OllUl.ltl02!
(omllnllllllcs (2010) Enll.lllccd Police Sen'lces
West County 49,431
Bayview COP 1,754 None
Crockett COP 3,094 Sheriff (1.5 Resident Deputies)
East Richmond Heights COP 3,280 None
EI Sobrante COP 12,669 None
Kensington COP 5,077 Kensington Police Protection & CSD
Montalvin Manor COP 2,876 None
North Richmond COP 3,717 Sheriff (6 Resident Deputies)
Port Costa COP 190 None
Rodeo COP 8,679 Sheriff (Housing Authority Deputy)
Rollingwood COP 2,969 None
Tara Hills COP 5,126 None
Central County_ 74,358
Acalanes Ridge COP 1,137 None
Alamo COP (CSA P-2B)' 12,736 Sheriff (1 School Resource Officer)
Alamo Springs' (CSA M-30) 62 Danville (Regular Beat)
Alhambra Valley COP 924 None
Blackhawk COP (CSA P-2A) 9,354 Sheriff (1 Lieutenant, 2 Resident Deputies]
Camino .T assajara COP (Portion of CSA P-2A) 2,197 None
Canyon 200 None
Castle Hill COP 1,299 None
ClydeCDP 678 None
Contra Costa Centre CDP+ 5,133 Sheriff (1 Resident Deputy)
Diablo COP (Diablo CSD) 1,158 Sheriff (1 Resident Deputy)
Dougherty Valley' (CSA M-29) 22,160 San Ramon (Regular Beat)
Mountain View COP 2,372 None
Norris Canyon COP 957 None
North Gate COP 679 None
Pacheco COP 3,685 Sheriff (1 Resident Deputy)
Reliez Valley COP 3,101 None
Round Hill' (CSA P-5) 1,764 Sheriff (1 Sergeant, 1 Resident Deputy)
San Miguel COP 3,392 None
Saranap COP 5,202 None
Shell Ridge COP 959 None
Vine Hill COP 3,761 None
EastCounty 39,683
Bay Point COP 21,349 Sheriff (3 Resident Deputies, 1 SRO)
Bethel Island COP 2,137 None
Byron COP 1,277 None
Discovery Bay COP 13,352 Sheriff (2 Resident Deputies, 1 Crime Prevention Specialist)
Knightsen COP 1,568 None
Orwood Resort None
Source: 2010 Census
Notes:
1) CDr indicates Census Designated Place
2) • indicates estimated population
3) Exduding Alamo Springs and Round Hill
Law Enforcement MSR
Union Pacific Railroad Company
usc
Authority: 49 24305(e ) and California Penal Code § 830.33 (e)
Profile: Union Pacific Railroad (UPRR) Police serving Contra Costa County operate out of
the Oakland Division office. The Oakland Division is one of 10 divisions in the
23-state UPRR system. This Division is responsible for all railroad property and
rail/street crossings in an area that extends from the California-Oregon border
on the north, Elko, Nevada on the east, and San Luis Obispo and Chowchilla on
the south. UPRR Police personnel have jurisdiction anywhere within the state,
perform 'ride-along' duties on trains, and are heavily involved in drug smuggling
interdiction operations.
Staffing: The Oakland Division is under the direction of one Captain and one Lieutenant,
and utilizes up to 20 officers. All are fully sworn California peace officers.
Additional police personnel (up to 220) from the UPRR system, plus special
operations (SWORT) teams can be assembled as necessary. UPRR Police
coordinate with Amtrak Police as well as local, state and federal law
enforcement agencies.
Equipment: Each officer has one vehicle, with the fleet transitioning from unmarked to
marked patrol vehicles. ATVs and an Emergency Response Trailer are also
available. Communications are through UPRR headquarters in Omaha,
Nebraska, with the capability of interfacing with local law enforcement agencies
through the CHP Golden Gate Division in Vallejo.
Organizations and Persons Contacted
32. Organizations and Persons Contacted
Agency or Organization Persons Contacted
Amtrak Police Department Joe Gross, Officer
Antioch Police Department Allan Cantando, Chief of Police
Rick Marchoke, Lieutenant
Virginia Johnson, Crime Data Technician
Bay Area Rapid Transit Police Department Andy Alkire, Lieutenant
Brentwood Police Department Mark Evenson, Chief of Police
California Department of Fish and Game Sheree Christensen, Lieutenant
Clayton Police Department Dan Lawrence, Chief of Police
Tim Marchut, Sergeant
Concord Police Department Guy A. Swanger, Chief of Police
Daniel Siri, Captain
Brian Wiesendanger, Captain
Cheryl Owens, Administrative Services Manager
Contra Costa Community College District Thomas Sharp, Lieutenant (Retired)
Police Department Chad Wehrmeister, Lieutenant
Contra Costa County Public Works Jessi Duffy, Engineering Technician
Department, Special Districts Section
Contra Costa County Sheriffs Office David O. Livingston, Sheriff
Michael Casten, Undersheriff
Scott P. Daley, Former Undersheriff
Ron Jarrell, Former Undersheriff
David Pascoe, Commander
Ron Bradley, Captain
325
Law Enforcement MSR
Elise Warren, Lieutenant
Frank Scudero, Fiscal Officer
Gail Bowen, Communications Director
Sammy Smith, Sergeant
Crockett Cogeneration Plant Chris Sargent, Plant Manager
Danville Police Department Steve P. Simpkins, Chief of Police
jeff Moule, Lieutenant
Allan Shields, Investigations Supervisor
Danville, Town of Marcia Somers, Assistant Town Manager
Diablo Community Services District Richard j. Breitwieser, General Manager
EI Cerrito Police Department Sylvia M. Moir, Chief of Police
Michael Regan, Captain
Hercules Police Department William Goswick, Interim Chief of Police
Ruben Rodriguez, Sergeant
john F. Kennedy University David Sadler, Director of Facilities
KenSington Police Protection and Gregory E. Harmon, General Manager and
Community Services District Chief of Police
Lafayette Police Department Michael Hubbard, Chief of Police
Martinez Police Department Gary D. Peterson, Chief of Police
Moraga Police Department Robert Priebe, Chief of Police
jeff Price, Lieutenant
Mount Diablo State Park Dan Stefanisko, Supervising Ranger
Oakley Police Department Bani Kollo, Chief of Police
Orinda Police Department jeffrey jennings, Chief of Police
326
Organizations and Persons Contacted
Pinole Police Department Paul Clancy, Chief of Police (Retired)
john Hardester, Chief of Police
Terri Krieger, Support Services Manager
Beth Bartke, Administrative Assistant
Pittsburg Police Department Aaron L. Baker, Chief of Police
Brian Addington, Lieutenant
Pleasant Hill Police Department Peter Dunbar, Chief of Police
john F. Moore, Captain
Peter Enea, Lieutenant
Rhodia Martinez Plant Laura Gantt, Senior Project Manager
Richmond Police Department Edwind (Ed) Medina, Deputy Chief of Police
San Pablo Police Department Mark E. Foisie, Captain
San Ramon Police Department Scott Holder, Chief of Police
Union Pacific Railroad john Allen, Special Agent (Captain)
United States Coast Guard jeremy Pichette, Lieutenant junior Grade
Walnut Creek Police Department joel H. Bryden, Chief of Police
Tim Schultz, Commander
Steve Skinner, Commander
Tori Maxfield, Executive Assistant
West Contra Costa Unifies School District William Fay, Deputy Superintendent
327